Evaluation of The Tennessee Parent Support Program 11-2013

Evaluation of the Tennessee

Parent Support Program
Tennessee
Parent Support Program
Lanae Davis, MPA

Jessica Pearson, Ph.D.
Nancy Thoennes, Ph.D.
Center for POLICY RESEARCH
1570 EMERSON STREET
DENVER, COLORADO 80218
303/837‐1555

November 2013

Acknowledgments
The authors would like to thank the following individuals for their significant contributions to this
project.

State‐Level Personnel
David Sanchez, Assistant Commissioner, Family Assistance and Child Support, Tennessee Department of Human
Services
Charles Bryson, Director of Child Support Operations, Tennessee Department of Human Services
David Teasdale, Family Centered Services Manager, TN Department of Human Services, Child Support Division
Lynn Klinghard, Program Coordinator, TN Department of Human Services
Mary Rose Zingale, Programs Manager, Administrative Office of the Courts
Lisa Hoover, Programmer/Analyst, Tennessee Department of Human Services

11th Judicial District Personnel
Jennifer Gentzler, Grant Program Coordinator, Tennessee Department of Human Services, Child Support
Magistrate Kathy Clark, Hamilton County Juvenile Court, Child Support Division
Magistrate Chris Gott, Hamilton County Juvenile Court, Child Support Division
Magistrate Emma Andrews, Hamilton County Juvenile Court, Child Support Division
Martha Sanders‐Tonahill, Administrator, Child Support Services

Sophia Young‐McAdoo, Grant Program Coordinator, Tennessee Department of Human Services, Child Support
Magistrate Scott Rosenberg, Davidson County Juvenile Court
Magistrate Shelia Calloway, Davidson County Juvenile Court
Magistrate Julie Ottman, Davidson County Juvenile Court
Judge Sophia Crawford, Davidson County Juvenile Court
Patti Risner, Child Support Area Coordinator, Tennessee Department of Human Services
Lucretia LaFavor, Site Manager, Child Support Services
Dana Schmidt, Site Manager, Child Support Services
Angela Foster, Establishment Team Leader, Child Support Services
Julie Fletcher, Functional Manager, Child Support Services

Patti Clanton, Grant Program Coordinator, Tennessee Department of Human Services, Child Support
John Askins, Grant Program Coordinator, Tennessee Department of Human Services, Child Support
Jody Harper, Parenting Coordinator, Tennessee Department of Human Services, Child Support
Judge Christy Little, General Sessions Court, Madison County
Judge Larry McKenzie, General Sessions Court, Chester County
Judge Robert Stevie Beal, General Sessions Court, Henderson County
Robert Starr, Director, Child Support Services
Angie Taylor, Specialist 3 Supervisor, Child Support Services

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Table of Contents
Executive Summary
1. Introduction ......................................................................................................... 1
2. Background: Child Support, Employment, and Parenting ................................... 3
3. Program Setting ................................................................................................... 8
4. Evaluation Methodology .................................................................................... 11
5. Profile of the Parent Support Program Participants .......................................... 17
6. Employment Services Needed and Provided ..................................................... 30
7. Parenting Plans and Contact with Children ....................................................... 35
8. Financial Status of Participants .......................................................................... 39
9. Child Support Status and Outcomes .................................................................. 42
10. Reactions to the Program .................................................................................. 49
11. Short‐Term Job Training Pilot Project ................................................................ 51
12. Summary and Conclusions ................................................................................. 60
References ...................................................................................................................... 72

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Executive Summary
The Project
In October 2009, the Tennessee Department of Human Services (DHS) was awarded a grant from the
federal Office of Child Support Enforcement (OCSE) to develop, implement, and evaluate a program
providing employment, parenting time, and case management services to low‐income, unwed parents in
the child support program in three Tennessee judicial districts: the 11th (Chattanooga), 20th (Nashville),
and 26th (Chester, Henderson, and Madison counties which includes the city of Jackson). The program,
called the Parent Support Program (PSP), was conducted in collaboration with the Tennessee
Administrative Office of the Courts (AOC). The new project built on the Tennessee Parenting Project,
which was funded by OCSE, conducted by DHS and AOC in the same three judicial districts, and provided
parenting time services to low‐income parents in the child support program. PSP enabled child support
agencies in these three jurisdictions to hire staff to provide case management and job‐focused services
in addition to helping with parenting time.
From January 2010 through March 2013, 1,016 noncustodial parents enrolled in PSP across the three
project sites: 342 in the 11th, 435 in the 20th and 239 in the 26th. Most enrollees were African‐
American males (83%). Nearly half (47%), and completed high school or attained a GED. Nearly all of
the participants in the 11th and 20th Judicial Districts (JD) were unemployed when they enrolled in PSP
(92% and 82%, respectively) and a majority of the participants in the 26th JD were unemployed (54%).
On average, PSP participants had been unemployed for 17 months and only 6 to 11 percent were
receiving unemployment benefits. They had earned an average of $9.45 per hour and a median of $8.50
in their most recent job. Three‐quarters of all PSP participants characterized their financial situation as
“poor” and reported annual earnings of $10,000 or less.
In the last year of the Parent Support Project, DHS and AOC developed a pilot project to test the
effectiveness of providing short‐term, paid, job training in generating longer‐term employment and
regular child support payments for noncustodial parents (NCP). Except for those enrolled in the pilot,
NCPs in the PSP were offered only soft skills and job search services such as résumé preparation, job
leads, and interview practice. They rarely had access to job training and none had the opportunity to
participate in paid training programs. Pilot job training services were provided by Goodwill agencies in
two of the project sites: the 11th Judicial District (Chattanooga) and the 20th Judicial District (Nashville).
From January 2013 through April 30, 2013, 54 NCPs were referred to the Goodwill Pilot Demonstration
project, and their progress was monitored through August 2013.
The Center for Policy Research (CPR) of Denver, Colorado, conducted a comprehensive evaluation. It
included data from a Management Information System that project staff used to record information on

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PSP participants, including demographics, employment, barriers to child support payment, parent‐child
contact and service delivery; telephone interviews with participants conducted three and six months
following PSP enrollment to determine employment status and the use of various services and referrals
available through PSP; and a data extract from the Tennessee Child Support Enforcement System
(TCSES) that included information on child support orders, arrears balances, and payment patterns in
the 24 months prior to and following enrollment in PSP. The only data on service delivery in PSP and
employment outcomes came from client interviews, which were ultimately done with fewer than half of
all PSP participants
CPR also generated a non‐treatment comparison group consisting of 466 child support cases in
jurisdictions selected to match the project sites. Very limited information was available on noncustodial
parents in these cases and subsequent analysis revealed that they were not equivalent to the treatment
group and had higher levels of employment and better child support payment behaviors at program
enrollment.
The Participants’ Service Needs
 The top problems noted by PSP participants across the three project sites were limited work
history (80%), lack of job skills (78%), prior incarceration (77%), lack of reliable transportation
(60%), and the lack of a driver’s license (60%).

 On average, PSP participants had child support cases that were seven years old, with only 11
percent having cases that were under one year. Nearly all owed past‐due child support and had
average arrears balances that ranged from $6,000 in the 26th JD to $22,000 in the 11th.
Average obligations for current monthly support were $273 in the 26th JD, $370 in the 11th JD,
and $406 in the 20th JD. Total average monthly obligations for current monthly support and
arrears were $323 in the 26th JD, $447 in the 11th JD, and $526 in the 20th JD.

 Over 80 percent of NCPs who enrolled in PSP wanted job‐focused services. Half in the 11th JD
and 65 percent in the 26th JD wanted help with driver’s license reinstatement (45% across the
three project sites), and approximately one third (38%) wanted a one‐on‐one explanation of
their child support situation and options. Only 18 percent of PSP participants had a written
parenting plan, and nearly a third (31%) of those without a visitation plan wanted help
developing one. Many parents in the 26th JD (72%), who reported the highest levels of conflict
with the other parent, wanted help with co‐parenting.
PSP Services Provided and Outcomes
 PSP participants interviewed at three and six months following enrollment reported receiving a
variety of employment‐focused job services. For example, 88 percent reported getting help

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with job listings and postings; 60 percent reported getting job leads and counseling from PSP
staff members; and 49 percent reported participating in job fairs and hiring events.
 PSP participants also reported strong increases in employment. In the 11th JD, rates of
employment rose from 8 percent at program enrollment to 67 percent at the three‐month
check to 45 percent at the six‐month follow‐up interview. In the 20th JD, rates of employment
rose from 8 percent at program enrollment to 46 percent at the three‐month check to 50
percent at the six‐month follow‐up interview. In the 26th JD, rates of employment rose from 46
percent at program enrollment to 65 percent at the three‐month check to 69 percent at the six‐
month follow‐up interview.
 According to the automated child support system (TCSES), payments among PSP participants
improved significantly following their enrollment. The percentage of months during which PSP
participants made a child support payment prior to and following program enrollment rose from
43 to 48 percent in the 11th JD, 37 to 38 percent in the 20th, and 52 to 62 percent in the 26th
JD. The differences between pre‐ and post‐program payment were only statistically significant
in the 26th JD. The percentage of child support due that was paid prior to and following
enrollment in PSP rose significantly for PSP participants, from 33 percent to 36 percent. Those
who received help with access and visitation registered significant improvements in child
support payment, paying 45 percent of their child support obligation, as compared with 32
percent for those who did not receive help with parenting time.
Goodwill Job Training Pilot
 Of the 54 noncustodial parents who enrolled in the job training pilot project, 10 percent did not
qualify because they had an open criminal case, 45 percent dropped out, and the remaining 23
percent either completed job training and secured full time employment or were still actively
participating in job training and job search (22%).
 The incidence of verified employment for participants in the Goodwill Pilot Project rose from 2
percent at enrollment to 38 percent when project data were collected, while the incidence of an
active income assignment rose from 28 to 40 percent.
 The percentage of participants in the Goodwill Pilot Project who paid nothing toward their
current child support obligation dropped from 33 to 20 percent in the six months following
enrollment, while the median number of months in which participants made a child support
payment rose from one to two.
Key Findings
 Many noncustodial parents seen at the child support agency need and want help with
employment. PSP participants had dramatically higher unemployment rates than those for the
general population in the 11th, 20th, and 26th Judicial Districts, and nearly all wanted help
finding a job.

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 Programs like PSP attract participants at all stages of child support case processing. Although
the OCSE initiative was designed to focus on new child support cases recruited at order
establishment, NCPs who enrolled in PSP had child support cases ranging in age from one to 24
years. Recruitment efforts for future programs should be broad and not restricted to a certain
age range or stage of case processing.
 Low income noncustodial parents face many barriers to obtaining and retaining employment.
At program intake, between 59 and 80 percent of NCPs reported that a limited work history, a
lack of job skills, prior incarceration, the lack of a car or reliable transportation, not having a
driver’s license, and lacking a high school diploma or GED presented barriers to finding
employment. This is similar to what other jurisdictions implementing employment programs for
low income NCPs have found.
 Many low‐income noncustodial parents who enroll in programs for employment assistance
drop out or participate at only minimal levels. Nearly half (45%) of the 54 noncustodial parents
who enrolled in the Goodwill Job Training Pilot Project dropped out, and another 10 percent did
not qualify because they had an open criminal case. Other employment programs for
noncustodial parents also report high rates of attrition, ranging from 30 to 40 percent.
 PSP increased employment among participants. Employment increased following enrollment
in PSP with the percentage of employed noncustodial parents rising from 8 percent at program
enrollment in the 11th and 20th Judicial Districts to 45 and 50 percent at the six‐month follow‐
up interview, respectively. This compares favorably with Arapahoe County’s Parent’s To Work
program, where 54 percent of noncustodial parents obtained employment following enrollment
in the program.
 PSP increased child support payments among participants. The percentage of child support
due that participants’ paid prior to and following their enrollment in PSP rose significantly, from
33 to 36 percent.
 Noncustodial parents who participate in paid training programs appear to experience
improvements in employment and child support payment. Early results from the Goodwill
training pilot are promising. In the six months following enrollment, the incidence of verified
employment among participants rose from 2 percent to 38 percent, active income assignments
increased from 28 to 40 percent, and the median number of months in which participants made
a child support payment rose from one to two.
 Although child support payment patterns improved following PSP participation, they
remained far from complete. That payment performance only rose from 33 to 36 percent, with
the most substantial increases occurring in the 26th JD may be due to the fact that average
order levels were the lowest at that site ($273 versus $400 in the 11th and 20th). Noncustodial
parents at this site were substantially more likely than their counterparts in the 11th and 20th
Judicial Districts to agree that they could afford to pay their child support obligation (39% versus
fewer than 10%). Child support order levels should reflect actual earnings and an ability to pay.
 Few parents have formal parenting time arrangements, and many want help developing a
formal parenting plan to submit to the court. Only 18 percent of PSP participants said that they
had a written visitation plan, and 30 percent of those without one wanted help developing one

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(58% in the 26th Judicial District). These patterns are consistent with those observed in the
Massachusetts Parent Support Program, where only 18 percent had a written parenting plan
and 22 percent were interested in working with program staff to develop one.
 Helping parents with their parenting time problems improves the payment of child support.
PSP participants who received help with visitation paid 45 percent of their child support
obligation, as compared with 32 percent for those with no help. This is consistent with the
Tennessee Parenting Project, where average child support payments for noncustodial parents
who received parenting time services rose significantly, from 54.2 to 57.6 percent in the 12
months following program enrollment, and was unchanged for cases in the comparison group,
which only received printed information about community resources.
 Only a fraction of PSP participants have court orders dealing with family safety. According to
interviewed PSP participants, the incidence of restraining orders (2%), supervised visitation
orders (2%), and open child protection cases (3%) was very low. Although self‐reports of socially
undesirable behaviors are inherently unreliable, higher proportions of PSP participants disclosed
other socially undesirable behaviors such as drug and alcohol problems (13%), mental health
issues (13%), and housing instability (22%).
 Programs like Parent Support Program generate high levels of user satisfaction but many
participants want more intense job training opportunities and higher paying jobs. Most (82%)
participants rated PSP as “very” or “somewhat” helpful, and at least 80 percent classified
résumé preparation, computer training, workshops or classes on interviewing or preparing for
work, and ESL or GED classes as “excellent” or “good” features of the program. To improve the
program, at least 80 percent of the respondents suggested offering more job training programs,
having more job openings, having jobs that pay higher wages, and giving more help with rent.
 Although they are appreciated, programs like PSP do not change the grim financial situation
that low‐income NCPs face. After enrollment, 69 percent of PSP participants reported running
out of money for food, having to stay with family or friends because they lacked housing, or
having their utilities turned off. Low‐income noncustodial parents face considerable barriers to
employment, earnings, child support payment, and self‐sufficiency that are not readily
addressed in programs that aim to help.
 Child support offices should develop more responsive policies for low‐income NCPs. When
they enrolled in PSP, three quarters of participants reported annual earnings of $10,000 or less
and characterized their financial situation as “poor.” Recommended child support policies for
noncustodial parents in employment programs included expedited modifications, minimum
order levels, suspended enforcement actions, driver’s license reinstatement, and forgiveness of
state‐owed arrears.
 Child support offices should partner with workforce programs that are equipped to offer a
wider array of effective job services and to monitor service delivery. Interviewed PSP
participants were most apt to report receiving job postings and counseling to guide their job
search efforts; nearly all recommended offering more job training programs, job opportunities
for individuals with weak job history and prior incarceration, and more transportation
assistance. Future job‐focused services for noncustodial parents should be offered by

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experienced and resourced workforce programs that are equipped to provide a wider range of
services—including job training. These providers should also be in a better position to monitor
the actual delivery of workforce services and to track employment outcomes.

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1. Introduction
In 2009, the Tennessee Department of Human Services (DHS) was awarded a grant from the federal
Office of Child Support Enforcement (OCSE) to develop, implement, and evaluate a program providing
employment, parenting time, and case management services to low‐income, unwed parents in the child
support program in three judicial districts across Tennessee. DHS collaborated with the Tennessee
Administrative Office of the Courts (AOC) to design and implement the project. The project was
conducted in three sites:
The 11th Judicial District encompassing Hamilton County and the city of Chattanooga;
The 20th Judicial District encompassing Davidson County and the city of Nashville; and
The 26th Judicial District comprised of Chester, Henderson, and Madison counties and the city
of Jackson.
The program, called the Parent Support Program (PSP), built upon a previously funded OCSE
demonstration project conducted by DHS and AOC that had operated in these three judicial districts.
Known as the Tennessee Parenting Project, it had focused on providing parenting time services to low‐
income unwed parents in the child support system, encouraging cooperation between parents, and
strengthening the parents’ emotional connection with their children. As part of the Tennessee Parenting
Project, staff had offered facilitation services to 1,591 parents in the child support program to help them
develop parenting plans. A comprehensive evaluation by the Center for Policy Research (CPR) had
compared the impact of providing parenting time services to families in the child support program on
parental relationships, parent‐child contact and child support payments (Davis et al., 2010).
The Parent Support Program (PSP) placed staff known as Grant Program Coordinators (Coordinators) in
each of the three local child support offices to provide employment‐focused services to families.
Maximus operates the child support program for the 11th and 20th Judicial Districts, and the District
Attorney’s Office operates the child support program for the 26th Judicial District. The Social Services
Coordinators conducted outreach with child support workers, the court, and local community agencies
serving low‐income parents to generate referrals for the PSP and to deliver services aimed at helping
families in a holistic way.
Project staff conducted brief screenings with referred noncustodial parents (NCPs) to identify problems
that they had that might reduce their ability to support their children both emotionally and financially.
Since a critical service need that most recruited, low‐income noncustodial parents faced was
unemployment or underemployment, PSP staff developed partnerships with the local workforce
services providers and other community agencies that provide employment services. In addition to
providing referrals to the local workforce center, the Coordinators located at the local child support

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office were the primary provider of employment‐related services to NCPs enrolled in PSP. In addition to
employment services, the Coordinators were available to work with interested parents to develop a
parenting plan and provide referrals to other public and private agencies for needed supportive services.
During the last year of the grant, a pilot project was developed within the Parent Support Program to
test the effectiveness of a short‐term, paid, job‐training initiative in generating longer‐term employment
for NCPs. Except for those enrolled in the pilot, job training was unavailable through PSP and most
employment‐focused services involved job search activities and “soft skills” development such as
résumé preparation and interview practice provided by the Coordinators. The job training services for
the pilot were provided by the Goodwill agencies in the two pilot sites, which were the 11th Judicial
District (Chattanooga) and the 20th Judicial District (Nashville). The Goodwill Pilot Demonstration
project received PSP referrals beginning in January 2013 through April 30, 2013. Outcomes for these
cases were tracked through the final month of PSP, August 2013.
This report describes the design and operation of the Parent Support Program and the results of a
comprehensive process and impact evaluation conducted by the Center for Policy Research (CPR) of
Denver, Colorado, to assess its strengths and limitations.

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2. Background: Child Support, Employment, and
Parenting
Child support is a powerful economic tool for low‐income families. Researchers estimate that child
support removes approximately one million people from poverty (Sorensen, 2010; Wheaton & Tashi,
2008), and that next to mothers’ earnings, it is the second largest income source for poor families. It
comprises 30 percent of total family income among families below poverty and 15 percent for families
between 100 and 200 percent of poverty (Turetsky, 2005). Child support payment is also associated
with positive child well‐being outcomes (Knox & Bane, 1994) including gains in children’s academic
achievement and declines in behavioral problems (Koball & Principe, 2002).
Despite its potential, child support frequently goes unpaid. In 2007, census accounts showed that only
39.6 percent of never‐married parents received all the support they were due (Grall, 2009). The
Administration for Children and Families projects that its caseload will be increasingly comprised of
never‐married parents and that by 2009, 42 percent of the child support enforcement caseload will fall
in this category (Johnson & O’Brien‐Strain, 2000). Many noncustodial parents face barriers to
employment that include limited education, limited work histories, mental health and behavioral issues,
substance abuse, lack of transportation, and criminal backgrounds (Schroeder & Doughty, 2009). Ex‐
offenders face severe challenges finding a steady job, with two‐thirds of 3,000 interviewed employers
indicating that they would not knowingly hire a former prisoner (Holzer et al., 2004). Past incarceration
reduces subsequent wages by 11 percent, cuts annual employment by nine weeks, and reduces yearly
earnings by 40 percent (Pew, 2010).
In addition to the employment barriers they face, noncustodial parents often have child support
obligations that are unrealistically high. Sorensen and Oliver (2002) note that in 1999, more than one‐
quarter of poor fathers who paid child support spent 50 percent or more of their personal income on
child support, while only 2 percent of non‐poor fathers spent that much. Without coordination, child
support can undermine employment programs and discourage NCPs from participating in the formal
labor market. While two‐thirds of child support collections come from wage withholding, this is not
available for the 25 to 30 percent of noncustodial parents who have limited or no earnings (Sorensen &
Oliver, 2002).
For these reasons there is growing sentiment that child support agencies need to go beyond traditional
enforcement activities and collaborate with employment programs to address the array of problems
that many low‐income noncustodial parents face in a more comprehensive manner. The earliest
program to promote employment and father‐engagement among low‐income noncustodial parents was
Parents’ Fair Share, a large‐scale, national demonstration project that used random assignment
techniques. Conducted in seven states from 1994 to 1996, Parent’s Fair Share provided court‐ordered
employment services to unemployed noncustodial parents who owed arrears to the government. In

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addition, noncustodial parents were offered case management, peer support services, help with
parenting, help with the relationship with the other parent, and referrals for other community services.
The evaluation found that child support payments for parents in the experimental group increased by
nearly 20 percent. This was largely attributed to the fact that many noncustodial parents who claimed
to be unemployed and unable to pay support chose to begin paying when subjected to extra outreach
and court hearings through the project. Truly unemployed noncustodial parents who received
employment services were less apt to experience increases in employment activity or earnings relative
to the comparison group, with the exception of the most disadvantaged—those without a high school
diploma and with limited work experience. There was little parent interest in mediation services to
improve parental relationships or parent‐child contact, but considerable enthusiasm for peer support.
Although they involved fewer participants than Parents’ Fair Share and lacked the use of random
assignment techniques, Welfare‐to‐Work, the OCSE Responsible Fatherhood Programs, and Partners for
Fragile Families were other early, multi‐site projects that targeted unemployed noncustodial parents
and offered employment‐oriented services. Like Parents’ Fair Share, they yielded mixed findings on
effectiveness. For example, while the OCSE Responsible Fatherhood Programs succeeded in promoting
employment and increasing client earnings relative to their pre‐program work and earning patterns,
most noncustodial parents continued to show low earnings following program participation, with the
most substantial increases occurring for those entering the programs with the lowest rates of
employment and income (Pearson et al., 2003). While child support payments increased following
program participation, most enrollees still paid less than the full amount due and their arrearages did
not drop. And although most fathers in the program (64%) lacked a visitation order and half wanted
help getting to see their children more often, relatively few participated in mediation (6%), parent
education (17%), or other interventions dealing with parenting or relationships (Miller & Knox, 2001).
More recently, numerous states and local jurisdictions have developed employment programs for
nonresident fathers in the child support system. The most carefully evaluated of these programs are
Texas’ NCP Choices (Schroeder & Daughty, 2009), Colorado’s Parents to Work (Pearson, Davis & Venohr,
2011), and New York’s Strengthening Families through Stronger Fathers Initiative (Lippold & Sorensen,
2011). The Department of Labor is currently conducting the Enhanced Transitional Jobs Demonstration,
a national demonstration of the effectiveness of transitional jobs for unemployed non‐custodial parents.
The federal Office of Child Support Enforcement supported strategic planning efforts in Oklahoma,
Tennessee, South Carolina, North Carolina, and Georgia to develop statewide capabilities to conduct
child support‐workforce programs. In addition to the Tennessee Parent Support Program, OCSE funded a
similar demonstration project in Massachusetts that dealt with employment‐focused services known as
the Massachusetts Parent Support Program (PSP) (Pearson, Kaunelis, & Thoennes, 2012). And in 2012,
OCSE funded the Child Support Noncustodial Parent Employment Demonstration Project (CSPED), a five‐
year national demonstration of employment programs for unemployed noncustodial parents in eight
states that uses random assignment techniques.

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One clear finding across demonstration programs is that poorly educated men with limited work
experience face challenges gaining employment, meeting their child support obligations, and
maintaining relationships with their partners and children. Nevertheless, evaluations of these newer
generation employment programs find that they result in greater participation in workforce
development activities, increased job activity, and higher rates of child support payment. Newer
noncustodial parent‐employment programs are also associated with improvements in the regularity and
amount of child support that is paid.
One such program is Texas NCP Choices, which court‐orders unemployed noncustodial parents with
cases handled by the Texas Office of the Attorney General, Division of Child Support whose children are
current or former recipients of public assistance to participate in employment programs operated by the
Texas Workforce Commission. An evaluation that compared participants and non‐participants with
similar characteristics in different jurisdictions found that noncustodial parents in the treatment group
were employed at a 21 percent higher rate, paid their child support 47 percent more often, and paid $57
per month more than those in the comparison group. This resulted in a 51 percent increase in total
collections. In addition, custodial parents associated with NCP Choices were 21 percent less likely to
receive TANF benefits in the first year after program enrollment, and 29 percent less likely two to four
years after enrollment (Schroeder and Doughty, 2009).
Colorado’s Parents to Work program involved the voluntary referral of unemployed and underemployed
noncustodial parents with open child support cases at the Arapahoe Division of Child Support
Enforcement to Arapahoe/Douglas Workforce Center for assessment and the development of a service
plan that typically included job search assistance, job readiness training, and job placement.
Participants also received child support‐related services such as driver’s license reinstatement. A
comparison of pre‐ and post‐program payment patterns for 600 cases in the treatment group with 350
randomly generated cases in a comparison group found that the percentage of child support due that
was paid increased significantly (from 36.6% to 41.3%) in the treatment group, but was unchanged in
the comparison group (28.2% versus 27.5%). Although members of both groups had lower earnings
following project enrollment compared with their pre‐program, pre‐recession earning levels, treatment
group members had significantly higher rates of earnings and less economic decline due to the
2008/2009 economic recession. Those with the highest levels of participation realized the greatest
economic benefit (Pearson et al., 2011).
The New York Strengthening Families Through Stronger Fathers Initiative enrolled 3,700 unemployed
noncustodial parents who were behind in their child support payments in four cities. Participants in
New York’s employment programs were referred on a voluntary basis to workforce programs where
they were assessed to identify their service needs and offered an array of work readiness, job search,
job training, and work support services. The sites also offered workshops on relationship skills and child
support interventions. By comparing project participants with matched non‐participants, evaluators
concluded that participants in the employment programs earned 22 percent more and paid 38 percent

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more in child support than a comparable group of fathers who did not receive the intervention
(Sorensen et al., 2009).
The Massachusetts Parent Support Program recruited noncustodial parents of all ages and stages of case
processing; screened them for eligibility at court hearings; strongly urged eligible noncustodial parents
to participate; and retained a dedicated work force case manager who offered project participants
employment services that included job search, placement, and retention activities. PSP enrollment
activities occurred over a 19‐month period (June 2010 to January 2012), and ultimately 296
noncustodial parents participated in the project. All participants engaged in a one‐on‐one assessment by
the employment case manager, and 50 to 60 percent pursued opportunities for help with résumé
development, cold calling to employers, job and aptitude testing, job readiness classes, immediate job
search assistance, and help with online and/or paper applications. One quarter (27%) of the 296 parents
who enrolled in PSP actively engaged in project services and found a job, with 20 percent obtaining two
or more jobs. PSP participants who became employed paid 67 percent of the child support they owed in
the 12 months following project enrollment, while those who did not find jobs paid significantly less—35
percent (Pearson, Kaunelis, and Thoennes, 2012).
These results are prompting many jurisdictions to initiate and operate work‐oriented programs for
unemployed noncustodial parents, although OCSE estimates that only 1 to 3 percent of the caseload
participates in such programs at any given time (OCSE, 2012). While the precise elements of a “clearly
successful program design” have not yet been established, the literature on these programs (including
“newer generation” models) offers some clues about how to best serve never‐married, low‐income
parents.
Recruitment is challenging so programs should use a variety of referral techniques and sources
(including courts) and work with noncustodial parents of all ages and all stages of case
processing to achieve strong enrollment goals.
In addition to job search and job readiness training, programs should pursue workforce services
that are effective with poorly educated noncustodial parents with limited computer skills and
criminal backgrounds, including short‐term job training, job development, and job placement
and retention services.
Programs should pursue “enhanced” child support policies such as suspending child support
enforcement during program participation, establishing minimum orders rather than imputing
minimum wage, reviewing and adjusting orders to match actual earnings more quickly than is
the norm, forgiving some arrears in exchange for project participation and employment and
child support payment, and/or assisting with driver’s license reinstatement.
Programs should develop communication systems so that child support staff, workforce
personnel, and the court can exchange information about noncustodial parents and monitor
their participation.

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Programs should provide assistance with transportation and other practical barriers that
impede the ability to work and explore the use of other financial incentives and work supports.
Programs should strengthen noncustodial parent commitment to workforce programs,
legitimate employment, child support payment, and other pro‐social and pro‐family behaviors
through opportunities to develop parenting plans and effective peer‐support interventions.

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3. Program Setting
The Parent Support Program operated in three judicial districts. The 20th Judicial District is Davidson
County, which includes the city of Nashville. The 11th Judicial District is Hamilton County, which
includes Chattanooga. The 26th Judicial District is composed of three counties: Madison, Chester and
Henderson.
The three judicial districts vary in population size. The 20th JD has a population of over 648,000, with
1,243 individuals per square mile. The 11th JD has approximately half the population of the 20th, at just
over 345,000, and 620 individuals per square mile. The 26th JD is made up of three rural counties that
range in population size from approximately 17,000 to 98,000, and average less than 100 individuals per
square mile.
The counties participating in the Parent Support Program are predominantly white, non‐Hispanic. The
African‐American population ranges from a low of 8 and 9 percent in Madison and Henderson counties
in the 26th JD, to a high of 36 percent in Chester County in the 20th JD. Over 80 percent of the
population in each of the three judicial districts has a population with high school degrees or greater.
Table 3.1. Selected Demographic Characteristics of Counties
Davidson
Hamilton County Madison Chester Henderson Combined
County
(Chattanooga) County County County 26th JD
(Nashville)
11th JD 26th JD 26th JD 26th JD (averaged)
20th JD
143,850
Total population 648,295 345,545 28,023 98,656 17,171
combined
Population per square mile 1,243 620 53 176 60 96
Percentage African American 28% 20% 8% 36% 9% 18%
Percentage White, non‐
58% 72% 88% 58% 86% 77%
Hispanic
Percentage with high school
85% 86% 81% 85% 78% 81%
degree or higher
Table 3.2 shows selected economic characteristics of the counties. The counties that comprise the 26th
JD had the highest unemployment rates during the time the project was running. For example, in one
county in the 26th, Henderson, the 2011 unemployment rate was 12.3 percent, compared to 9.5
percent for Tennessee as a whole and 9.0 percent for the United States.
Median 2011 incomes ranged from a low of $37,627 in Madison County to a high of $46,737 in Davidson
County. The comparable figure for the United States as a whole was $52,762, and for Tennessee, it was
$43,989. Poverty rates were lowest in Chattanooga (15.9%) and highest in Madison County (19.2%). For
Tennessee as a whole, the poverty rate was 16.9 percent, and for the United States, it was 14.3 percent.

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Table 3.2. Selected Economic Characteristics of Counties
Davidson Hamilton
United
County County Chester Henderson Madison Tennessee
States
(Nashville) (Chattanooga) County County County Total
Total

20th JD 11th JD 26th JD
2011 Unemployment
8.2% 8.7% 10.3% 12.3% 9.8% 9.5% 9.0%
Rate
Median Household
$46,737 $45,826 $39,776 $37,627 $40,667 $43,989 $52,762
Income (2007‐2011)
Persons below
17.7% 15.9% 17.9% 16.5% 19.2% 16.9% 14.3%
poverty (2007‐2011)
Geographically, the judicial districts include counties in southeastern Tennessee (Hamilton), north
central Tennessee (Davidson), and western Tennessee (Madison, Chester, and Henderson Counties).

Figure 3.1
The Parent Support Program placed Coordinators in each of the three local child support offices. These
local child support offices have different administrative arrangements that are representative of the
state as a whole: Hamilton County and Davidson County is managed by Maximus; and Madison, Chester,
and Henderson counties are managed by the Tennessee District Attorneys General Conference. The
selected sites differ in caseload size, ranging from a high of 35,714 cases in the child support office in the
20th JD to a low of 10,128 in the office located in the 26th JD. Although there are also differences in
performance measures across the sites, such as the percentage of cases under order, paternity
acknowledgement rates, collections on current support, and payments towards arrears, no one office
stands out as performing significantly better or worse than the others.

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Table 3.3. Selected Child Support Characteristics of Counties
Davidson County Hamilton County Madison, Chester, and
(Nashville) (Chattanooga) Henderson counties
Tennessee District Attorneys
Child support program administrator Maximus Maximus
General Conference
Number of open child support cases 35,714 21,233 10,128
Percentage TANF cases 13,490 (37.7%) 6,781 (31.94%) 3,364 (33.21%)
Percentage of cases under order 62.92% 72.69% 59.16%
Percentage collected on current
52.38% 52.35% 58.32%
support
Percentage of cases paying arrears 23.81% 23.30% 30.62%
Paternity establishment percentage 79.29% 89.39% 72.45%
IV‐D out‐of‐wedlock children 29,466 16,161 7,924

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4. Evaluation Methodology
This chapter describes how the data were generated for the evaluation of the Parent Support Program,
including data sources and methods of data collection. It also describes efforts made to generate a non‐
treatment comparison group and changes made to the original evaluation plan.
Generation of the Experimental Group
Experimental group cases in the project counties were referred for enrollment in the Parent Support
Program from multiple sources. Noncustodial parents seen at the child support office for establishment
or enforcement activities were screened by child support workers to determine if there were barriers to
child support payment, such as unemployment or underemployment, lack of a parenting time plan,
disagreements between parents regarding parenting time, lack of transportation, and/or substance
abuse or mental health problems. In additional to child support workers, court magistrates, referees,
and other judicial personnel who had contact with NCPs with barriers to child support payment were
asked to make referrals to the Coordinators in their jurisdiction for enrollment into PSP.
Once the NCP was referred to the Coordinator for enrollment in PSP, the NCP appeared at the child
support office to attend a one‐on‐one or group orientation session to learn about the services offered
by PSP. The Coordinator completed an intake and assessment survey with the NCP to gather
demographic, education, employment history, and relationship information. A service plan was
developed and the Coordinator provided referrals and employment help to the NCP based on his or her
needs. All information collected from the NCP at the initial meeting was entered into an online
Management Information System (MIS) developed for the project.
Enrollment in PSP began in January 2010, peaked in the third quarter of 2010 with a high of 172
enrollments per quarter, and then leveled off and remained relatively steady at about 60 NCPs per
quarter. Figure 4.1 provides an overview of enrollments by quarter for each site and total. A total of
1,016 NCPs were enrolled in PSP over the 27‐month enrollment period.

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Enrollment of PSP Participants by Quarter and Site
Total
172 JD 26
153 JD 20
138 JD 11
113
87
69 76
56
40
37
36
5 5
January 2010 March 2013

Figure 4.1
Generation of Comparison Group
The original proposal for the Parent Support Program called for the random assignment of enrollees into
a low‐ or high‐level treatment group. According to the original plan, the low‐level treatment group
would be given written information about community resources that might be helpful to address their
barriers to child support payment, but would not be provided with any individualized or intensive
assistance. They would be asked to complete a telephone interview six months following enrollment to
track their progress in addressing barriers to child support payment and to determine whether they had
used any community services. High‐level treatment group cases would be offered enhanced services
provided by project staff. They would also be asked to participate in follow‐up interviews six months
following their enrollment. At the conclusion of the project, child support records for members of both
groups would be checked for evidence of payment.
Early in the project planning phase, Parent Support Program staff raised concerns about the practicality
of generating a low‐level treatment group, especially in a small, rural setting like the 26th Judicial
District. They anticipated problems when members of the comparison group discovered that their
neighbors in the experimental group were receiving services not offered to them. Staff also worried
whether the low‐level treatment group’s receipt of a packet of information rather than more robust
services would undermine the goal of enhancing parent perceptions of the child support agency and
lead them to become more disengaged.

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Finally, it proved impossible to utilize a true random assignment scheme with cases referred by the
court because judges required that all court‐referred cases be enrolled in the high‐level treatment
group. Because of these concerns, CPR, project staff, and key stakeholders considered various
alternatives to the proposed random assignment methodology and determined that the only alternative
was to generate a comparison group from other jurisdictions with similar sizes and demographics.
Based on a review of demographic and child support characteristics, it was decided to match the 11th JD
with the 6th Judicial District; the 20th JD with the 16th, 18th, and 19th; and the 26th with the 28th. CPR
sought to generate a comparison group by identifying parents with similar problems in these matched
jurisdictions. A screening tool was developed that child support workers distributed to parents who
came to the child support office for services in these matched jurisdictions. Parents who disclosed
problems were provided with a packet of information on employment and parenting time resources in
their community, and were asked to participate in a follow‐up telephone interview.
The screening form used to generate the comparison group was administered in each comparison
district beginning in June 2010 and ending in November 2011. In each of the comparison districts, the
main child support office was asked to hand out the one‐page screening forms to parents as they came
into the office for services. During that time period, a total of 466 parents completed the screening
form and were identified as a comparison group case.
Although the comparison group was sufficiently large, there were a number of ways in which it proved a
poor match to the experimental group. Most notably, since the custodial parent is typically the parent
that comes to the child support office for services, it was impossible to obtain background information
on noncustodial parents in the comparison group and only custodial parent information was available.
In addition, a subsequent assessment of the child support characteristics and payment patterns for
cases in the two groups revealed that the comparison group was comprised of noncustodial parents
who had better child support payment patterns and lower arrears balances than did members of the
experimental group at program enrollment. For these reasons, only limited reference is made the
comparison group in the evaluation of PSP.
Data Sources for the Evaluation
CPR used a variety of methods to collect data for the evaluation of the Parent Support Program and
Goodwill Pilot Training Demonstration.
As previously discussed, to generate comparable cases for the comparison group, CPR
developed a one‐page screening form to be handed out by child support workers in the
comparison jurisdictions. These screening forms asked parents about possible problems they
may be having that might impede their ability to support their children financially or be an
effective parent. They included such factors as unemployment, conflict with the other parent,
the lack of a parenting time plan, or mental health and substance abuse issues. These
screenings began in June 2010 and continued through November 2011. All parents who

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indicated that they had problems in these areas were placed in the comparison group.
Ultimately, the comparison group consisted of 466 cases generated in matched judicial districts.
A Management Information System (MIS) consisting of an Access database was developed by
CPR to collect referral, enrollment, demographic, employment, and relationship information on
experimental group cases. The database was uploaded and made secure and accessible via
cloud server to allow for the Coordinators across the three project sites to access, enroll, and
track participants in this secure online system. This also allowed for CPR staff to have real‐time
access to data in order to provide ongoing technical assistance and reporting.
A brief, three‐month follow‐up telephone check was developed and conducted by a CPR
interviewer with NCPs enrolled in the PSP experimental group. The purpose of the interview
was to determine the employment status of project participants three months following
enrollment. Interviewers also asked about the services participants had received and the action
they had taken on referrals provided by PSP staff. A total of 488 participants were interviewed
three months following enrollment.
A six‐month follow‐up telephone interview was developed by CPR and administered by
Northern Illinois University’s Public Opinion Laboratory (POL). The six‐month follow‐up
interviews were targeted to all members of the experimental and comparison groups. These
interviews were used to assess whether members of the high‐level treatment group found
project services to be accessible and helpful and whether members of the low‐level treatment
group had pursued any of the resources contained in the written information they received.
Both groups were asked about their employment status and other problems they had disclosed
at the start of the project. Members of both groups were asked to provide information about
their involvement with their nonresident children. Phone contact was attempted with 1,257
project participants: 877 from the high‐level treatment group and 380 from the low‐level
treatment groups. Calls were made beginning in February 2011 and completed in March 2013.
A total of 410 interviews were completed during this time period representing a response rate
of 32.6 percent. The response rate for members of the experimental group was 38 percent and
19 percent for the comparison group.
A data extract from the Tennessee Child Support System was generated based on parameters
provided to DHS by CPR. The child support data extract contained information on the child
support case characteristics for NCPs in the experimental and comparison groups including:
monthly support order, arrears balance and payment behavior in the 24 months prior to and
following enrollment in the Parent Support Program. At the close of the evaluation, CPR
analyzed the child support extract paying particular attention to information on child support
payments for up to 24 months following program enrollment for each member of the
experimental and comparison groups.
The table below provides a summary of the data collected from each source by project site and
treatment group.

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Table 4.1 Summary of Data Collected, by Group and Site
Hamilton Davidson Madison, Chester Total
Total
County County and Henderson Comparison
Treatment
(Chattanooga) (Nashville) Counties group
Group
Intake data collected on NCPs at
342 435 239 1,016
enrollment
Screening forms to generate a
comparison group in matched 466
counties
Brief interviews conducted 3
208 164 116 488
months post‐enrollment
Interviews conducted 6 months
112 147 78 337 73
post‐enrollment
Child support extract with data for
24 months pre‐ and post‐ 254 283 178 715 178
enrollment
 Typically, this was information on the custodial parent only.
In addition to the data collected for the PSP experimental and comparison group enrollees, CPR
collected data on members of the Goodwill Pilot demonstration, which offered paid job training services
to a sub‐group of noncustodial parents. A total of 54 PSP enrollees were referred to Goodwill for the job
training pilot demonstration. Goodwill and PSP coordinators collected data on enrollment, demographic
characteristics, and service receipt using the same online MIS employed for the PSP. Evaluators
conducted open‐ended, follow‐up telephone interviews with enrollees. Finally, their child support
records were checked for payment activity prior to and following their enrollment in the Goodwill Pilot.
With the above data, CPR sought to answer the following primary research questions:
What percentage of low‐income and never‐married families who are establishing child support
need various types of services, such as access and visitation, employment, substance abuse
treatment, housing, or transportation?
When offered the opportunity to participate in needed services, what percentage of parents
participate and fail to participate?
Are parents who receive case management more likely to access services than are parents who
receive a packet of information about community resources
Do noncustodial parents who receive services obtain jobs?
Do noncustodial parents who receive services do a better job of seeing their children regularly?
Do noncustodial parents who receive services do a better job of paying child support?
Do paid job training opportunities enhance outcomes dealing with employment, earnings, and
child support payment?

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Limitations of the Evaluation
The evaluation of PSP had several shortcomings. As previously noted, it was impossible to generate a
treatment and comparison group using random assignment techniques, and the comparison group that
was ultimately produced from matched counties differed from the experimental group in basic ways. As
a result, the outcome analysis focuses on behaviors of members of the experimental group before and
after enrollment in PSP, with only limited reference to the comparison group.
The study also has limited information on the various types of services received by noncustodial parents
enrolled in PSP. Project staff maintained careful records of the service needs of PSP participants.
Project resources did not allow for the collection of service delivery information directly from the service
providers. Nor was employment activity available from a reliable third‐party source. Instead it was
necessary to rely on participant reports. Attempts were made to contact all participants three and six
months after enrollment; however, interviews ultimately could be conducted with fewer than half of all
PSP enrollees.

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5. Profile of the Parent Support Program Participants
Demographics
At each of the sites, the majority of the noncustodial parents enrolled in the Parent Support Program
were male. Most were also African American who were approximately 30 to 35 years of age. However,
all three sites served a wide range of ages. For example, at all three sites, the youngest noncustodial
parents were approximately 18 years old, while the oldest were approximately 60 years of age.
Table 5.1. Demographic Profile of PSP Participants, by Site
11th JD 20th JD 26th JD Total
Gender
Male 83% 82% 98% 86%
Female 17% 19% 3% 14%
Number (434) (340) (239) (1,013)
Race of NCP
African American 79% 86% 76% 81%
White, non‐Hispanic 19% 12% 21% 17%
Hispanic 1% < 0.5% 2% 1%
Other < 0.5% 1% 1% 1%
Number (426) (336) (239) (1,001)
Age 
Mean 35 36 29 34
Median 34.5 36.0 29.0 33.0
Range 18‐61 20‐59 18‐54 18‐61
Number (302) (325) (235) (862)
 Chi square is significant at .02.
The difference between the mean age of NCPs in the 26th Judicial District and the mean ages of the NCPs in the 11th and
20th Judicial Districts are statistically significant at <.000.
Table 5.2 shows the educational levels attained by the noncustodial parents in the PSP. Most
commonly, participating NCPs had either completed high school or had attained a GED. In the 20th JD
and the 11th JD, about a third had less than a high school degree or GED. Less than 10 percent at any
site had completed a bachelor’s degree, although 20 percent had either attended some college or
completed an associate’s degree.

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Table 5.2. PSP Participants' Highest Educational Attainment, by Site
Bachelor’s degree 4% 9% 5% 6%
Some college, no degree 14% 14% 21% 15%
AA degree 3% 2% 2% 2%
GED or high school diploma 45% 44% 54% 47%
No high school or GED 34% 32% 19% 30%
As is shown in Table 5.3, only about 10 percent of the noncustodial parents were enrolled in school at
the time of intake to the PSP. Those who were enrolled tended to be in GED programs or were
attending trade schools.
Table 5.3. School Enrollment of PSP Participants, by Site
11thh JD 20th JD 26th JD Total
Currently enrolled in school
Yes 10% 13% 9% 11%
No 90% 87% 91% 89%
Number (427) (338) (236) (1,001)
 If enrolled in school, type of program:
Trade school 15% 28% 17% 21%
GED program 45% 14% 22% 27%
High school 8% 12% 4% 9%
Associate’s degree program 23% 26% 13% 22%
Bachelor’s degree program 10% 21% 39% 21%
Graduate school 0% 0% 4% 1%
Number (40) (43) (23) (106)
Table 5.4 shows that most noncustodial parents in the 11th JD had never participated in a job training
program. In the 20th JD and the 26th JD, 39 percent to 55 percent had been in a job training program.
Only the 20th JD had a significant percentage of noncustodial parents who reported participating in job
training that lasted a year or more. However, even in this jurisdiction the percentage was still low
(21%).

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Table 5.4. Information about Past Job Training Received by PSP Participants, by Site
 Has the NCP received the following training: 11th JD 20th JD 26th JD Total
Attended trade school 4% 16% 20% 13%
Short‐term training (up to 1 month) 2% 10% 3% 5%
Moderate‐term, on‐the‐job training 1% 9% 6% 5%
Long‐term, on‐the‐job training (more than 1 year) 0% 21% 10% 11%
None of the above 93% 45% 61% 66%
Number (309) (334) (236) (879)
Participant has a vocational certificate 2% 24% 24% 15%
Number (335) (336) (186) (857)
 Chi square is significant at <.000.
Employment
Table 5.5 shows that relatively few of the participants in the 11th and 20th judicial districts had received
services at a Workforce Center. In the more rural 26th JD, participation in the Workforce Center was
more common (53%). Ratings of the helpfulness of the Workforce Centers varied by site. Most of those
in the 20th JD who used a Workforce Center reported it was helpful. Most of those in the 11th JD
reported the Workforce Center was not helpful. The 26th JD fell in between the other two sites, with
approximately half rating the Workforce Center as helpful and half saying it was not helpful.
Table 5.5. Past Assistance From a Workforce Center Reported by PSP Participants, by Site
 Has NCP received assistance from a Workforce Center 11th JD 20th JD 26th JD Total
Yes 17% 26% 53% 29%
No 81% 70% 48% 69%
Don’t Know 2% 4% 0% 2%
Number (403) (338) (238) (979)
If yes, how helpful was the Workforce Center?
Not at all or not very helpful 62% 25% 45% 46%
Somewhat or very helpful 38% 75% 55% 54%
Number (104) (80) (124) (308)

There were significant differences across the three sites with respect to the employment status of
participants at entry to the Parent Support Program. Participants in the 26th JD, composed of rural
counties, reported the highest levels of full‐time employment, with about a third employed full time.
The more urban centers of Nashville and Chattanooga reported participant unemployment rates of 92
and 82 percent, respectively.

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Table 5.6. Employment Status of PSP Participants at Program Enrollment, by Site 
Employment status at intake:
Employed full time 2% 7% 34% 11%
Employed part time 2% 9% 11% 6%
Seasonal/temporary employment 4% 2% 2% 3%
Unemployed 92% 82% 54% 80%
Number (424) (339) (238) (1,001)
 Chi square is significant between sites at .000.
Among those who were unemployed at intake to the Parent Support Program, most had been
unemployed for one year (26th JD) to two years (20th JD). Relatively few participants were still
receiving unemployment benefits at intake.
Table 5.7. Information on Unemployed PSP Participants, by Site
Length of unemployment: 
Mean 16 months 22 months 12 months 17 months
Median 8.5 months 12 months 7 months 11 months
Number (334) (229) (126) (689)
Currently receiving unemployment benefits 6% 7% 11% 7%
Number (295) (257) (124) (676)
Length of weeks receiving unemployment benefits
Mean 21 weeks 19 weeks 13 weeks 18 weeks
Median 5 weeks 13 weeks 8 weeks 9.5 weeks
1 to 124
Range 1 to 124 weeks 6 to 52 weeks 1 to 52 weeks
weeks
Number (12) (9) (13) (34)
 The difference between the mean number of months the NCPs in the 20th Judicial District had been unemployed and the
mean number of months the NCPs in the 11th and 26th Judicial Districts had been unemployed are statistically significant at
<.003.

When asked about their current or most recent job, most respondents reported earning approximately
$9.50 per hour and the average number of hours worked per week tended to be 35 to 40. Most
participants were employed in jobs that offered no benefits. For example, health benefits were
provided in 10 percent of the jobs or less and retirement benefits were provided in less than 2 percent
of the cases.

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Table 5.8. Information about Current or Most Recent Job Held by PSP Participants, by Site 
Hourly wage
Mean $9.37 $9.40 $9.54 $9.45
Median $8.00 $9.00 $8.50 $8.50
Range $2.13‐$40.00 $2.13‐$33.00 $2.15‐$28.00 $2.13‐$40.00
Number (178) (272) (235) (685)
Number of hours worked per

week
Mean 35 34 35 35
Median 40 40 40 40
Range 8‐40 6‐70 7‐60 6‐70
Number (169) (257) (234) (660)
 Types of benefits offered:
Health insurance only 3% 8% 10% 6%
Retirement benefits only <0.5% 2% <0.5% 1%
Both health and retirement
7% 16% 27% 15%
benefits
None 89% 74% 62% 78%
Number (375) (289) (234) (898)
Given the patterns described above, it is not surprising that 56 to 85 percent of the respondents
described their current financial situation as “poor.” Table 5.9 shows annual earnings by site. This data
was not available in the 20th JD. In the 11th JD, 60 percent of participants reported no earnings in the
previous year, and in the 26th JD, most participants reported earning between $10,000 and $20,000
annually. Relatively few of the NCPs in any JD reported receiving any public benefits. The exception to
this pattern was food stamps, which about half of the NCPs in each JD reported receiving at enrollment.
Table 5.9. Financial Situation at Intake for PSP Participants, by Site 
 Financial situation is
Good 1% 4% 7% 3%
Fair 23% 12% 37% 23%
Poor 76% 85% 56% 74%
Number (406) (339) (237) (982)

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Table 5.9. Financial Situation at Intake for PSP Participants, by Site 

Annual earnings
$0 60% Not available 5% 45%
$10,000 or less 26% 35% 29%
$10,001 ‐ $20,000 8% 34% 15%
$20,001 ‐ $30,000 5% 17% 8%
$30,001 ‐ $40,000 2% 5% 3%
$40,001 ‐ $50,000 1% 1% 1%
$50,000 or more 0% 1% 1%
Number (198) (76) (274)
Percentage who own a car 42% 33% 56% 42%
(399) (336) (235) (970)
Percentage receiving
Food stamps 49% 54% 52% 52%
Unemployment benefits 3% 6% 9% 5%
TennCare 3% 9% 19% 7%
Families First 1% 4% 4% 3%
Disability benefits (SSI, SSDI) 1% 7% 5% 4%
Veteran’s benefits 1% 4% 0% 2%
The intake interview asked noncustodial parents if they had received any financial planning or money
management services prior to enrolling in PSP. The vast majority in each site reported they had never
received such services.
Table 5.10. PSP Participants Who Reported Receiving Financial Planning Assistance at Intake, by Site 
Had received financial
planning or money 1% 4% 0% 2%
management at intake
Number (398) (317) (83) (798)
Responses to questions about the current economic well‐being of PSP participants at enrollment
revealed a number of differences across the sites. Over half of the respondents in the 20th JD
(Nashville) reported having more debt than they would ever be able to pay off, and over 70 percent said
they sometimes ran out of money for food prior to the end of the month. The 11th JD (Chattanooga)
also had substantial proportions of noncustodial parents reporting more debt than they could handle

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and running out of food. Participants in the rural counties in the 26th JD were most likely to report
being able to keep up with all their financial obligations (45%). As previously noted, NCPs in the 26th JD
were most apt to report being employed either on a full‐time (34%) or part‐time (11%) basis.
Table 5.11. Financial Hardship at Intake for PSP Participants, by Site 
Percentage reporting
 I have more debt than I will ever be able to pay off 26% 57% 8% 33%
 I have medical coverage for myself 5% 16% 36% 17%
 Sometimes I run out of money for food before the
20% 71% 32% 41%
end of the month
 I can afford to make my child support obligations 2% 9% 39% 14%
 I am keeping up on all my financial obligations 2% 13% 46% 16%
 I have a bank account 6% 15% 40% 17%
 Most months I am able to save a little money 1% 12% 17% 9%
When asked about their prior employment, most NCPs at all of the sites reported having held one or
two jobs in the last five years. The longest time with one employer ranged from an average of 45
months in the 26th JD to 55 months in the 20th JD. In other words, PSP participants were
overwhelmingly likely to have prior work experience and to report substantial tenure at a single job.
Table 5.12. Information about PSP Participants’ Employment History at Intake, by Site 
 Number of jobs held in the past five years
None 2% 4% 2% 3%
One or two 58% 59% 51% 56%
Three or four 30% 31% 36% 32%
Five or six 9% 3% 8% 7%
More than six 2% 3% 3% 2%
Number (405) (321) (236) (962)
Most months employed at same job/same employer
Mean 47 55 45 49
Median 48 48 36 36
Range <1‐252 <1‐300 <1‐240 <1‐300
Number (371) (264) (225) (860)

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Table 5.13 shows the percentage of NCPs who were interested in receiving various types of services
when they enrolled in the Parent Support Program. The top five services of interest all dealt with jobs:
■ Help finding a job with benefits;
■ Help finding any type of job;
■ Help finding a job with better pay;
■ Help finding a job with more hours; and
■ Help with job search and applying online.
Participants in the rural jurisdictions in the 26th JD were least apt to mention needing help with any of
these services. For example, when asked if they wanted help accessing job skills training, only 17
percent of those in the 26th JD responded affirmatively, compared to 96 percent in the 11th JD and 69
percent in the 20th JD.
Table 5.13. Types of Employment Help PSP Participants Want, by Site
Percentage of respondents wanting help with 11th JD 20th JD 26th JD Total
the following: (n=415) (n=333) (n=203) (n=951)
Help finding a job with benefits 98% 98% 67% 90%
Help finding any job 99% 92% 62% 88%
Help finding a job that pays more 98% 97% 61% 88%
Help finding a job with more hours 98% 90% 44% 83%
Help with job search and applying online 98% 79% 63% 82%
On the job training 95% 85% 19% 73%
Job readiness classes (résumés,
97% 69% 34% 72%
interviewing, etc.)
Job skills classes 96% 69% 17% 68%
Getting a vocational certificate or attending
95% 65% 13% 65%
trade school
Going back to school for a degree 95% 57% 20% 63%
Children and Custodial Parents
Table 5.14 shows that most project participants had never been married to the custodial parent,
although significant percentages of participants in the 20th and 26th JDs had lived together. The
majority of noncustodial parents in each site reported having only a single child with the custodial
parent; between 12 and 46 percent had more than a single child together.
The sites varied considerably with respect to the degree to which the noncustodial parent reported
getting along well with the custodial parent. For example, in the 11th JD, 65 percent of project

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participants described the relationship with the other parent as “cooperative” or “fairly cooperative.”
This was true for 44 percent of those in the 20th JD. In the 26th JD, participants rated cooperation
between the parents at the lowest level. Over 40 percent described the relationship as angry and
hostile. This was true for only 11 percent and 19 percent of those in the 11th and 20th JDs, respectively.
As a result, as Table 5.14 shows, parents in this setting were significantly more interested in getting help
with parenting.
Table 5.14. Marital Situation at Intake for PSP Participants, by Site 
 Were you ever married to the custodial parent?
Never married and never lived together 57% 40% 40% 47%
Never married, lived together 16% 48% 55% 37%
Yes, we were married 27% 12% 6% 17%
 Number of children with the custodial parent
One 50% 66% 88% 65%
Two 25% 22% 11% 21%
Three to five 21% 11% 1% 13%
More than five 4% 1% 0% 1%
 Nature of your relationship with the other parent
Angry and hostile 11% 19% 43% 22%
Fairly cooperative 21% 34% 37% 29%
Cooperative 51% 23% 12% 32%
No relationship, no contact 14% 21% 7% 15%
(387) (331) (235) (953)
Table 5.15 summarizes levels of contact with children reported by participants at entry to the Parent
Support Program. The percentage reporting contact with the child at least once a week ranged from 54
percent in the 11th JD, to 44 percent in the 20th JD, to 32 percent in the 26th JD. The percentage
reporting they never see their children was low at each of the sites: 20 percent at the 11th JD and 13
and 14 percent, respectively, in the 20th and 26th judicial districts. Very few participants reported that
there was a restraining order or court order restricting contact with children.
Noncustodial parents were presented with a number of reasons why parent‐child contact sometimes
occurs less frequently than the parent would like and asked if any of these were barriers to more
contact in his or her case. The percentage of NCPs citing barriers to contact with children varied
significantly by site, from a low of 11 percent in the 11th JD to a high of 80 percent in the 26th JD.
Among those who cited barriers to greater contact with their children, the single most common reason
was resistance to contact by the custodial parent. This was followed by noncustodial parents reporting
problems in their own lives that they wanted to address before beginning to see their children.

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Table 5.15. Contact with Children at Intake for PSP Participants, by Site 
Percentage reporting a restraining order against the
1% 2% 2% 2%
NCP
Percentage reporting court has ordered no visits or
2% 4% 1% 3%
supervised visits
Percentage with an ongoing child protection case 2% 3% 2% 2%
About how often do you see the children at intake
More than once a week 41% 22% 12% 16%
About once a week 13% 22% 20% 18%
About once or twice a month 6% 22% 26% 17%
About every other month 3% 5% 12% 6%
About once or twice a year 3% 9% 10% 7%
Never 20% 14% 13% 16%
Other 14% 5% 7% 9%
Percentage mentioning any barriers to visitation 11% 56% 80% 46%
(319) (329) (233) (881)
Of those mentioning some barriers, percentage citing
these as reasons for not seeing their children as often
as they would like
 Custodial parent did not want visits 92% 65% 88% 78%
Problems in life (like drugs, jail) prevented
50% 33% 28% 31%
involvement
Live too far away 31% 17% 12% 15%
 Have another family and children and this takes up
22% 17% 3% 11%
NCP’s time
(35) (185) (190) (410)
 Does NCP have a visitation plan?
No 76% 54% 64% 65%
Not sure 3% 6% 2% 4%
Yes, verbal plan 7% 13% 22% 13%
Yes, written plan 14% 27% 12% 18%
(369) (328) (230) (927)

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As shown in Table 5.15, most noncustodial parents did not have a written visitation plan when they
enrolled in the Parent Support Program. In fact, averaging across the three sites, 65 percent said there
was no plan, 4 percent were uncertain whether there was a plan, 13 percent said there was a verbal
agreement, and 18 percent had a written plan.
Noncustodial parents without written visitation plans were asked if they were interested in getting help
developing one. As shown in Table 5.16, overall, about a third of those without plans said they would
like to develop one. This ranged from a low of 4 percent expressing such an interest in the 11th JD to a
high of 58 percent in the 26th JD.
Table 5.16. Interest in Visitation Help for PSP Participants at Intake, by Site
Percentage interested in
Help working out a visitation plan 4% 31% 58% 31%
(86) (150) (87) (323)
Noncustodial parents were asked about their interest in a variety of other services related to parent‐
child contact, such as help modifying an order, getting the other parent to follow the plan, co‐parenting,
and ensuring their children’s safety in the custodial parent’s care. The results, summarized in Table
5.17, show that few noncustodial parents in the 11th JD had interest in any of these services. Interest
was somewhat greater in the 20th and 26th. In the 20th JD, about a third of the parents were
interested in each of the services mentioned. In the 26th JD, the most commonly selected item was
help with co‐parenting, which was of interest to 72 percent of NCPs.
Table 5.17. Interest in Help with Access for PSP Participants at Intake, by Site
Percent interested in
Help modifying an existing plan 3% 36% 19% 19%
Help getting the other parent to follow the plan 2% 33% 32% 20%
Help to do a better job of co‐parenting 2% 33% 72% 30%
Ensuring that the children are safe with the other parent 3% 33% 23% 19%
(86) (150) (87) (323)

Other Problems for Noncustodial Parents
At program intake, NCPs were also asked about a number of other issues that might be causing them
problems. The top five items, when averaged across the three sites, were: a limited work history, a lack
of job skills, prior incarceration, and the lack of a car, or reliable transportation. The least commonly
mentioned items had to do with limited English, domestic violence, lack of child or elder care, or issues
with the children. There were some differences by site. Specifically, program participants in the 20th JD

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generally cited more problems compared to NCPs in the 11th and 26th JDs. However, across the sites,
the issues most commonly reported by NCPs as barriers to child support payment involved employment.
Table 5.18. Problems Reported at Intake by PSP Participants, by Site
Percentage reporting the following are problems 11th JD 20th JD 26th JD Total
 Limited work history 94% 89% 41% 80%
 Lack of job skills 95% 81% 36% 78%
 Past incarceration 72% 94% 69% 77%
 No reliable car or public transportation 57% 89% 18% 60%
 No driver’s license 32% 95% 52% 60%
 No GED/high school diploma 52% 90% 37% 59%
 Currently on probation or parole 20% 78% 44% 37%
 Lack of stable housing/homeless 4% 80% 3% 22%
 Disability or serious health issue 8% 61% 15% 17%
 Ongoing legal problems 8% 66% 7% 17%
 Drug or alcohol problems 8% 51% 8% 13%
 Mental health issues 7% 60% 3% 13%
 Issues with your children 1% 54% 1% 8%
 Lack of child care or elder care 1% 50% 0% 7%
 Domestic Violence 1% 36% 1% 5%
 Limited English 2% 22% 1% 3%
(177) (47) (72) (296)
Across all sites, less than 15 percent of PSP participants mention having been treated currently or in the
past for any physical, emotional, or medical condition. Only in the 20th JD did significant numbers agree
with the statement that their drug or alcohol use created problems with visitation or employment.
Finally, at all sites, significant numbers of PSP participants reported prior criminal histories. Indeed, only
24 and 20 percent of participants in the 11th and 20th JDs, respectfully, and 44 percent of NCPs in the
26th JD, reported that they had never been convicted of a misdemeanor or a felony.
Table 5.19. Medical, Substance Abuse, and Criminal Histories Reported by PSP Participants, by Site
 Have been treated in past or currently being treated

for a physical, emotional, or medical conditions
No 89% 76% 91% 85%
Yes, currently being treated 8% 9% 4% 7%
Yes, treated in the past 3% 14% 5% 7%
Percentage reporting use of drugs/alcohol interfere

with
Ability to maintain relationships with your children 0% 40% 5% 5%
Ability of maintain relationship with
0% 25% 4% 3%
your child’s guardian

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Table 5.19. Medical, Substance Abuse, and Criminal Histories Reported by PSP Participants, by Site
Your ability to look for a job 18% 55% 5% 19%
Your ability to maintain employment 2% 42% 9% 7%
 Have you ever been convicted of a crime?
No 24% 20% 44% 28%
Yes, both misdemeanor and felony 28% 33% 7% 25%
Yes, felony 9% 16% 21% 14%
Yes, misdemeanor 39% 31% 28% 34%
(177) (47) (72) (296)

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6. Employment Services Needed and Provided
This chapter reports on client employment needs based on an assessment done by Grant Program
Coordinators during program enrollment. It also describes what PSP participants had to say about their
own employment needs, what services they said they received, and their ratings of the usefulness of the
services they received.
Employment Needs
Table 6.1 shows that in approximately three‐quarters of the cases, the Coordinator felt clients needed
help with employment. And in nearly half (41%), they needed work support services. Needs were
perceived to be greatest in the 20th JD where nearly 90 percent of the participants were assessed to be
in need of employment services and nearly three‐quarters were seen as needing work support services,
including help with transportation, housing, money management, and work supplies.
Table 6.1. Employment and Work Support Service Needs for PSP Participants, by Site
Percentage of cases with service needs noted in these areas:
Employment 67% 86% 61% 75%
Work support services 39% 71% 3% 41%
(435) (342) (239) (1,016)
Table 6.2 shows that the most commonly identified employment need reported by Coordinators was job
search assistance. Averaging across the sites, three‐quarters of the clients needing employment services
were felt to need help with job search. Other frequently mentioned forms of employment assistance
were résumé preparation, obtaining vocational certificates, employment workshops, and help with basic
skills and GED preparation.
Table 6.3 shows the specific types of work supports that participants were perceived to need. In the
11th JD and the 20th JD this always involved transportation help. In the 26th JD, participants were most
likely to need help with money management and work supplies.

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Table 6.2. Specific Employment Needs of PSP Participants, by Site
Job referrals 62% 86% 90% 77%
Help with job search on the computer 59% 90% 76% 75%
Help with résumé preparation 66% 86% 33% 67%
Vocational certificate 57% 64% 12% 51%
Employment workshop 62% 53% 15% 49%
Help with basic skill/GED preparation 44% 52% 23% 43%
Other employment assistant (e.g., job training) 48% 15% 7% 26%
(20) (20) (37) (77)

Table 6.3. Specific Work Supports Needed by PSP Participants, by Site
Transportation assistance(bus tokens, car repair) 100% 99% 29% 98%
Assistance finding housing 1% 3% 14% 2%
Money management 0% 13% 29% 8%
Work supplies 0% 1% 14% 1%
(171) (242) (7) (420)
Table 6.4 shows that the clients who participated in a follow‐up interview were even more likely than
Coordinators to note that employment problems had motivated them to get involved with the Parent
Support Program. Over 90 percent of those interviewed in the 11th and 20th JDs, and 60 percent in the
26th JD, said they had problems finding a job or a job that paid sufficiently.
Table 6.4. Self‐Report of Employment Needs at Intake for PSP Participants, by Site
Percentage of cases with service needs noted in these

areas:
Problems finding a job or a better paying job 94% 95% 60% 87%
Not being regularly employed 80% 83% 44% 73%
Being injured or disabled or not able to work 27% 18% 5% 18%
(112) (145) (78) (335)

Employment Services Received
Table 6.5 shows the employment related services that participants reported receiving while in the
Parent Support Program. This self‐report information is based on a follow‐up interview conducted with
PSP participants approximately six months after enrollment. The analysis is restricted to those
participants who reported having employment problems when they enrolled. Overall, the service that
participants most commonly reported receiving was a list of job opportunities to use in their

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employment search. Counseling and one‐on‐one help with job leads were also mentioned frequently.
Participants in the 20th JD made more frequent use of: workshops or classes on job interviewing,
assistance with résumé preparation, job fairs and hiring events, and training on computer use. Usage
patterns in the 11th and 26th JD were more similar to one another.
Table 6.5. Self‐Report of Employment Services Received Among PSP Participants with Employment
Problems, by Site
Job listings and postings 89% 91% 75% 88%
Job leads, employment counseling, individual help from staff 52% 67% 53% 60%
Job fairs and other hiring events 38% 67% 49% 49%
Assistance with résumé preparation 38% 63% 28% 48%
Cold calling to employers 46% 52% 36% 47%
Workshops or classes on interviewing and preparing for work 30% 67% 23% 47%
Bus passes or gas money 29% 24% 25% 26%
Training on using computers 13% 33% 13% 23%
English as a Second Language or GED 12% 5% 8% 8%
Financial help to get clothing and work tools 3% 5% 4% 4%
(105) (138) (47) (290)
As is shown in Table 6.6, most PSP participants rated the services they received as “excellent” or “good.”
The lowest satisfaction ratings were given to cold calling employers to ask about job openings and job
fairs and other hiring events. However, even these activities received satisfaction ratings that exceeded
60 percent.
Table 6.6. Rating of Employment Services by PSP Participants, by Site
Percentage Rating this Service as “Excellent” or “Good” 11th JD 20th JD 26 JD Total
Assistance with résumé preparation 82% 93% 92% 90%
Training on using computers 93% 89% 66% 88%
Workshops or classes on interviewing and preparing for work 75% 86% 91% 84%
English as a Second Language or GED 85% 72% 100% 83%
Bus passes or gas money 65% 85% 75% 75%
Job leads, employment counseling, individual help from staff 61% 76% 84% 72%
Financial help to get clothing and work tools 33% 72% 100% 67%
Job listings and postings 58% 73% 60% 66%
Cold calling to employers 52% 63% 71% 60%
Job fairs and other hiring events 56% 56% 65% 58%
(105) (138) (47) (290)
Table 6.7 shows how PSP participants and those in the comparison group responded to questions about
services received. As previously noted, Coordinators provided services to PSP participants while
members of the comparison group probably received services at the local Career Center, which was the
entity listed on their packet of community referrals for help with employment. There were few

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statistically significant differences between the two groups. To the extent that there were differences,
PSP participants were more likely to report receiving bus passes or gas money and to be trained on using
computers. The comparison group was more likely to report participating in job fairs, used job postings,
and attended ESL or GED classes. It should be noted that interview responses were obtained from only
31 members of the comparison group.
Table 6.7. Self‐Report of Services and Training Received by PSP Participants and Comparison Group
Training Received at PSP or Career Center for Comparison PSP Participants Comparison
Training on using computers 20% 10%
Workshops or classes on interviewing/preparing for work 42% 32%
Participate in job fairs or other employment events 49% 64%
Receive assistance with résumé preparation 45% 42%
Get job listings or postings 79% 93%
Cold calling of employers 42% 55%
Employment counseling 54% 54%
 Bus passes or gas money 24% 6%
Attend English as a Second Language or GED 8% 16%
Financial help to get work clothes or tools 4% 10%
(337) (31)

Figure 6.1 shows employment activity reported by PSP participants at three points in time: when they
enrolled in PSP, when the Coordinator did a three‐month check on the client, and at the six‐month
follow‐up telephone interview. At every site, employment rose following PSP enrollment with the
increase being most dramatic in the 11th and 20th JD.
■ In the 11th JD, the percentage employed was 8 percent at enrollment, rose to 67 percent at the
three‐month check, and stood at 45 percent at the time of the six‐month follow‐up interview.
■ In the 20th JD, the percentage employed was 8 percent at enrollment, rose to 46 percent at the
three‐month check, and stood at 50 percent at the six‐month follow‐up interview.
■ In the 26th JD, the percentage employed at intake was 46 percent, rose to 65 percent at the
three‐month check, and was 69 percent at the six‐month follow‐up interview.
It is important to note that employment information was available only for the subset of PSP
participants who were interviewed. Thus the three and six month levels that are shown may overstate
the level of employment for the full group of PSP participants.

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Percent Reporting Being Employed at Entry, and 3 and 6 Months
Post PSP Enrollment, by Site
67%
69%
65%
11th JD
50%
46% 46% 45% 20th JD
26th JD
11th = n=424
20th = n=339
8%
8%
26th = n=238
Entry 3 months 6 months

Figure 6.1
Finally, with respect to employment assistance, Table 6.8 shows how PSP participants rated the program
and how the 31 members of the comparison group who were interviewed rated the Career Center. PSP
participants were clearly more pleased with the help they received relative to the comparison group. In
the comparison group, nearly half of those interviewed (42%) said the Career Center was “not very” or
“not at all” helpful. Less than 20 percent of the PSP participants gave “not helpful” ratings to the Parent
Support Program and nearly half (48%) rated PSP as “very helpful.”
Table 6.8. Rating of Helpfulness of Service Provide by PSP Participants and Comparison Group
How helpful was PSP or the Career Center (for Comparison) PSP Participants Comparison
Very helpful 48% 19%
Somewhat helpful 34% 39%
Not very helpful 8% 19%
Not at all helpful 10% 23%
(337) (31)

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7. Parenting Plans and Contact with Children
Parenting Plans
As noted earlier (Table 5.15), half to three‐quarters of the PSP participants reported that they lacked a
parenting plan when they enrolled in the program, and only 12 percent (26th JD) to 27 percent (20th
JDs) had a written plan. When the Coordinators at the sites checked on project participants three
months following enrollment, many had developed one. This was true for 50 percent of those in the
26th JD, 24 percent in the 20th JD, and 11 percent in the 11th JD.
Table 7.1. PSP Participants Lacking a Parenting Plan at Intake Who Developed One at Three‐Month
Check, by Site
Percentage reporting they developed a parenting plan
11% 24% 50% 24%
and filed it with the court
(122) (68) (58) (248)
In the telephone interview conducted approximately six months after intake, more than half of PSP
participants reported that they had received an explanation of their visitation or parenting time
situation. Depending upon the JD, approximately half to two‐thirds reported receiving help developing
a plan, and 16 to 31 percent reported receiving help revising their plan. Those who received these
services rated them highly.
Table 7.2. PSP Participants Reporting Receiving Various Parenting Time Services at Six Month
Telephone Interview, by Site
An explanation of your visitation or parenting time situation 54% 51% 78% 65%
Help developing a parenting plan for you and the other parent 62% 42% 61% 54%
Help changing an existing plan 31% 24% 16% 21%
(111) (144) (78) (333)

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Table 7.3. PSP Participants Rating of Various Parenting Time Services at Six Month Telephone
Interview, by Site
Percentage Rating this Service as “Excellent” or “Good” 11th JD 20th JD 26th JD Total
Explanation of your visitation or parenting time situation 100% 72% 79% 79%
Developing a parenting plan for you and the other parent 87% 59% 82% 76%
Help changing an existing plan 75% 70% 66% 70%
Contact with Children
At the three‐month check, the Coordinator asked PSP participants who had reported needing help with
parenting time whether their parenting situation was better, worse, or about the same. As shown in
Table 7.4, relatively few parents described things as “worse” than at intake. However, only in the 26th
JD did a majority say their parenting situation had improved. In the 11th JD, parents were fairly evenly
divided between those saying there had been improvements and those saying things were unchanged.
In the 20th JD, most participants said things had remained the same.
Table 7.4. PSP Participant Ratings of Parenting Situation at Three Month Check Compared with
Intake, by Site
At the three‐month follow‐up, client reports the

parenting situation has:
Improved 44% 27% 51% 42%
Stayed the same 44% 56% 35% 44%
Become worse 11% 16% 13% 14%
(9) (62) (90) (158)
At the six‐month telephone interview, 36 percent of those in the 11th JD, 33 percent in the 20th JD, and
43 percent in the 26th JD reported that contact with their children had increased. On the other hand, at
each site, about a quarter said that contact had decreased.

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Table 7.5. Reported Changes in Contact with Children for PSP Participants at
Six Months Telephone Interview, by Site 
Compared to six months ago has the amount of time

you spend with the children:
Decreased a lot 16% 22% 18% 19%
Decreased a little 7% 3% 9% 6%
Increased a little 16% 13% 13% 14%
Increased a lot 20% 21% 30% 23%
(112) (143) (77) (332)
Table 7.6 shows that there was no difference between the PSP participants and the comparison group in
reports of changes in contact levels during the preceding six months. In both group, about a third
reported contact had increased, just over a third reported it had stayed the same, and the remaining
respondents reported decreased contact.
Table 7.6. Contact with Children at Six Month Telephone Interview Reported by
PSP Participants and the Comparison Group
PSP Participants Comparison
Compared to six months ago, would you say the

amount of time you spend with the children has:
Decreased a lot 19% 16%
Decreased a little 6% 11%
Stayed the same 38% 39%
Increased a little 14% 10%
Increased a lot 22% 24%
(334) (70)
Although PSP participants were somewhat more likely than comparison group parents to report seeing
their children more regularly, the differences were not statistically significant. Nor were there
statistically significant differences across the sites. About a third of the PSP participants said contact
was more regular, while nearly half said it was the same as it had been at intake.

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Table 7.7. Reported Regularity of Visits with Children by PSP Participants and Comparison Group
PSP Participants Comparison
Compared to six months ago, would you say you see the

children:
More regularly 32% 25%
Less regularly 22% 20%
About the same 46% 55%
(331) (71)

Table 7.8. Reported Regularity of Contact with Children Six Month Telephone Interview
for PSP Participants, by Site 
See children more regularly 29% 31% 39% 32%
See children less regularly 24% 21% 22% 22%
See children about the same 47% 48% 39% 46%
(111) (141) (77) (329)

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8. Financial Status of Participants
Table 8.1 shows the public benefits that PSP participants reported receiving when they entered PSP and
the percentage needing help applying for services. Approximately half reported receiving food stamps
when they entered PSP, and about another third said they needed help applying for food stamps.
Unemployment benefits, Medicaid, TANF, and disability were reportedly received by less than 10
percent of participants.
In the 20th JD but not in the other sites, a significant number of participants wanted help applying for
benefits. At this site, 45 percent wanted help applying for unemployment benefits, 33 percent wanted
help applying for disability benefits, 22 percent wanted help applying for food stamps, and 19 percent
wanted help with making an application to Medicaid.
Table 8.1. Percentage Reporting Receiving Benefits and Needing Help Applying for Benefits
at Intake, by Site
Percentage receiving food stamps 49% 54% 52% 52%
Percentage needing help applying for food stamps 9% 22% 20% 17%
Unemployment benefits 3% 6% 9% 5%
Percentage needing help applying for unemployment
2% 45% 12% 19%
benefits
Medicaid 3% 9% 19% 7%
 Percentage needing help applying for Medicaid 1% 19% 11% 10%
TANF 1% 4% 4% 3%
Percentage needing help applying for TANF 1% 10% 4% 4%
Disability benefits (SSI, SSDI) 1% 7% 5% 4%
Percentage needing help applying for disability benefits 1% 33% 5% 11%
Table 8.2 shows the status of benefit receipt at the three‐month follow‐up check for those PSP
participants who wanted help with applying for benefits at intake. In the 11th JD, relatively few
participants had made a benefit application. In the 20th JD, where interest in help was the greatest,
over 60 percent had applied and 50 percent had been approved. In the 26th JD, approximately 40
percent had applied and 23 percent had been approved.

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Table 8.2. Benefit Status at Three Month Check for PSP Participants Wanting Help at Intake, by Site
Application Status 11th JD 20th JD 26th JD Total
Did not apply for any benefits 64% 36% 63% 54%
Applied, denied 8% 8% 11% 8%
Pending 3% 4% 3% 3%
Approved 26% 52% 23% 35%
(186) (157) (88) (431)
At the three month check, participants were asked to compare their current financial situation to their
situation at intake. At all three sites, about half said their situation had not changed, while about a
quarter said things were better and a quarter said things were worse.
Table 8.3. Rating of Financial Situation by PSP Participants at Three‐Month Check, by Site
Financial situation is better than at intake 25% 20% 24% 23%
Financial situation is the same as at intake 56% 51% 50% 53%
Financial situation is worse than at intake 20% 30% 26% 25%
(183) (154) (112) (449)
At the time of the six month follow‐up telephone interview, half to three‐quarters of PSP respondents
said they often had financial problems such as running out of money for food before the end of the
month, having utilities turned off for nonpayment, or having to stay with family and friends. Table 8.5
shows no difference in ratings of financial situation based on participation in employment services. In
both instances, about half of the respondents rated their financial situation as unchanged, 20 percent
characterized it as improved, and the rest rated it as worse.
Table 8.4. Financial Difficulties Reported by PSP Participants at
Six Month Telephone Interview, by Site
Percentage reporting they “often” 11th JD 20th JD 26th JD Total
Run out of money for food before the end of the month 56% 54% 47% 53%
 In the last 6 months have had utilities turned off 27% 13% 8% 16%
In the last 6 months have had to stay with family or friends 54% 41% 32% 43%
 Any of the above 74% 71% 56% 69%
(109) (144) (78) (331)

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Table 8.5. Rating of Financial Situation Reported by PSP Participants at Six Month Follow‐up
Telephone Interview, by Employment Services Received
Received No Financial Received Financial
Services from PSP Services from PSP
Financial situation is better than at intake 21% 22%
Financial situation is the same as at intake 56% 49%
Financial situation is worse than at intake 23% 40%
(34) (183)

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9. Child Support Status and Outcomes
Profile of PSP Participants’ Total Child Support Obligations
This chapter focuses on the payment behavior of PSP participants with respect to the specific child
support case that brought them into the program. However, the first tables provide an overview of all
of the participant’s child support cases. As shown in Table 9.1, most of the PSP participants had either
one or two active child support cases when they entered PSP. Virtually all had at least one child support
case with a parent to whom they were never married. To contrast, members of the comparison group
were much more likely to have only one active case (95% versus 64%), and somewhat less apt to have
an out‐of‐wedlock birth (80% versus 98%).
Table 9.1. Number of Active Child Support Cases at Intake for PSP Participants,
by Site and Comparison Group
11th JD 20th JD 26th JD Total PSP Comparison
One 64% 59% 71% 64% 95%
Two 23% 26% 22% 24% 5%
Three 8% 11% 4% 8% 0%
Four or more 5% 5% 4% 4% 0%
(252) (283) (178) (713) (171)

Table 9.2. Percentage with at Least One Active Child Support Cases Involving Never Married Parents
at Intake for PSP Participants, by Site and Comparison Group
At least one child support case with
94% 98% 98% 98% 80%
Never‐married parents
(252) (283) (178) (713) (171)
Only a few PSP participants had an arrears only child support case that only required payment for back
due child support. Most participants had arrears due for at least one case in addition to monthly
obligations for current support. Participants in the 26th Judicial District and those in the comparison
group were less likely to have arrears on one or more cases relative to those in the 11th and 20th
Judicial Districts.
Combining arrears balances for PSP participants across all their cases yields an average arrears balance
of approximately $20,000 in the 11th and 20th Judicial Districts. For the 26th Judicial District and the
comparison group, average arrears balances were $5,000 and $10,000, respectively. A comparison of
the total PSP population with the comparison group yields average arrears of $18,439 and $10,153,

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respectively. This further underscores the fundamental differences between the treatment and
comparison groups.
Table 9.3 Percentage of Arrears‐Only Cases at Intake
for PSP Participants, by Site and Comparison Group
Arrears‐only Cases 7% 4% 4% 4% 5%
(252) (283) (178) (713) (171)

Table 9.4. Arrears Status of Active Child Support Cases at Intake for PSP Participants,
by Site and Comparison Group
Percentage of cases with no arrears 1% 5% 20% 7.1% 23%
Arrears of $1,000 or less 5% 5% 27% 10.6% 16%
$1,001‐$5,000 20% 15% 22% 18.6% 22%
$5,001‐$10,000 18% 14% 12% 14.7% 15%
More than $10,001 56% 61% 19% 49.0% 25%
Average arrears $18,575 $22,996 $5,850 $18,439 $10,153
(252) (283) (178) (715) (171)

Combines all active cases.  Chi square is significant at .02.  ANOVA significant at .00.
Table 9.5 shows average current monthly support obligations for PSP participants when all their child
support case is taken into consideration. They averaged approximately $400 for participants in the 11th
and 20th Judicial Districts and in the comparison group. In the 26th Judicial District, monthly support
obligations were significantly lower, and averaged only $273.
Table 9.5. Current Support Due Across All Child Support Cases at Intake for PSP Participants,
by Site, and Comparison Group
$1 ‐ $200 13% 9% 39% 18% 17%
$201 ‐ $400 53% 52% 41% 50% 39%
$401 ‐ $600 23% 24% 18% 23% 23%
$601 ‐ $800 9% 9% 2% 7% 9%
$801 ‐ $1,000 2% 4% 0% 2% 7%
$1,001 or more 1% 2% 0% 1% 5%
Average $370 $406 $273 $361 $472
(209) (227) (140) (576) (121)

Combines all cases with current support orders.  Chi square is significant at .02.  Anova significant at .00.
Table 9.6 shows the average amount due across all orders if monthly arrears payments are added to
current monthly support obligation (the table includes only those cases with current support due). The
PSP participants in the 26th Judicial District and the comparison group owed approximately $500 per
month. In the 11th Judicial District, the average owed per month is approximately $450, and in the 20th,
the average is significantly lower at $323.

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Table 9.6. Total Monthly Amount Due (Current and Arrears Payments)
at Intake for PSP Participants, by Site, and Comparison Group
 Average $447 $526 $323 $449 $535
(209) (227) (140) (576) (121)

Includes only cases with current support due.  Anova significant at .00.
Profile of the Target Child Support Case
Every PSP participant entered the project because of a payment issues associated with a particular child
support case that is termed the “target case.” Typically, this case was scheduled for enforcement
activity during the enrollment timeframe. Table 9.7 shows that these cases were hardly new. On
average orders had been established 7.3 years earlier; the average was eight years in the 11th and 20th
Judicial Districts and approximately five years in the 26th Judicial District and the comparison group.
Thus, although PSP was originally conceived by OCSE to be a project that would intervene with
noncustodial parents who were establishing new child support orders, this clearly did not happen and
most participants had been in the system for many years and had older child support cases.
Table 9.7. Age of Child Support Order at Intake by PSP Participants, by Site and Comparison Group
Average 7.5 years 8.0 years 5.5 years 7.3 4.5 years
Median 7.0 years 7.0 years 4.0 years 6.0 3.5 years
(183) (196) (109) (488) (130)
Table 9.8 shows that it had been nearly two years since most project participants had made their last
current support payment on the case bringing them into PSP. The range was from only a month or two,
to over 40 months.
Table 9.8. Months from Last Child Support Payment to Enrollment in Program
by PSP Participants, by Site and Comparison Group
Average months 22.4 17.9 20.6 20.2 29.0
Median months 24.0 19.0 22.0 22.0 33.0
Range 1‐40 1‐34 1‐35 1‐40 2‐41
(65) (177) (139) (381) (154)

Post‐Program Child Support Performance
A key outcome of interest deals with the payment of child support by PSP participants on their target
case. One summary of pre‐ and post‐program payment activity is shown in Table 9.9. This table shows
the number of months in which a payment was due, and the number of months in which a participant
made a payment both prior to and following his enrollment in PSP. In the PSP sites, NCPs made a
payment in a third to half of the months with a payment due prior to enrollment, with an average of 48

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percent for the group as a whole. In the comparison group, rates of pre‐enrollment payment were
higher, with payments occurring in 71 percent of the months when they were due. Only in the 26th
Judicial District was there a post‐program increase in the percentage of months with a payment. It rose
from 52 percent pre‐program to 62 percent post‐enrollment. In the 11th and 20th Judicial Districts and
in the comparison group, the percentage of months with a payment was unchanged following program
enrollment. It may be relevant that child support order levels were significantly lower in the 26th
Judicial District as compared with order levels in the 11th and 20th as well as the comparison group.
Table 9.9. Average Number of Months with Payments Due and Average Number of
Months with Payment Made On Target Case at Intake and Extract for
PSP Participants, by Site and Comparison Group
Pre‐Program Post‐Program
Months with Months with Percentage Months with Percentage
Support Due Support Paid of Months Support Due Months with of Months
with a Support Paid with a
Payment Payment
11th JD (n=252) 15.5 6.9 43% 14.2 7.0 48%
20th JD (n=282) 14.8 5.4 37% 12.3 4.9 38%
26th JD (n=178) 13.3 6.9 52% 16.5 10.4 62%
Total PSP 14.7 6.3 48% 15.1 8.1 51%
Comparison (n=178) 13.3 7.7 71% 19.6 12.5 62%
Paired T‐test of months paid pre and post is significant at .02.
Table 9.10 presents another measure of payment performance. It shows the percentage of the amount
due that was paid by participants in each judicial district and across all project sites. Prior to enrollment
in the program, PSP participants in the 11th and 20th Judicial Districts paid approximately a quarter to a
third of the amount due, while those in the 26th Judicial District paid 45 percent of the amount due.
Once again, this may reflect higher rates of employment and lower child support obligation levels for
participants in the 26th Judicial District. Looking across sites, PSP clients paid an average of one‐third of
the current support that they owed prior to their enrollment in PSP. Following enrollment, the
percentage of owed child support that they paid rose to 36 percent. The change was statistically
significant.
Table 9.10. Percentage of Current Support Due that was Paid Pre and Post Program,
by Site and Total
11th JD 20th JD 26th JD Total PSP
Percentage of Amount Due that was Paid Pre‐Program 31% 26% 45% 33%
Percentage of Amount Due that was Paid Post‐Program 34% 27% 53% 36%

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Table 9.11 contrasts pre‐ and post‐program payment patterns for the experimental and comparison
groups. While the percentage of current support paid prior to and following enrollment in PSP increased
significantly from 33 to 36 percent for members of the experimental group, they declined for members
of the comparison group from 60 to 52 percent. As previously noted, members of the comparison group
had higher child support order levels and lower arrears balances at program enrollment suggesting that
they were better off financially and had a stronger history of child support payment.
Table 9.11. Percent of Current Support Due that was Paid Pre‐ and Post‐Program,
by Total PSP Enrollees and Comparison Group
Total PSP Comparison
Percentage of Amount Due that was Paid Pre‐Program 33% 60%
Percentage of Amount Due that was Paid Post‐Program 36% 52%
Another indicator of employment and child support payment is the percentage of cases with a verified
employer. The child support agency keeps track of verified employment in its database (TCSES) and this
was extracted for PSP participants and members of the comparison group. PSP enrollees show
improved employment patterns based on this measure with the percent with a verified employer
increasing from a low of 15 percent in the 11th Judicial District at enrollment to a high of 48 percent in
the 26th Judicial District at follow‐up. Table 9.12 also provides further evidence that the experimental
and comparison groups were not comparable with the comparison group having higher levels of
employment at enrollment and thus better child support payment patterns.
Table 9.12. Verified Employment Activity According to Child Support Records for PSP
Enrollees Pre‐ and Post‐Program Enrollment
TCSES shows verified employer at enrollment 15% 20% 42% 24% 47%
TCSES shows verified employer at follow‐up 45% 47% 48% 46% 53%
(254) (283) (178) (715) (178)
When they entered the PSP, clients in need of child support assistance were most likely to report
needing help with having a driver’s license reinstated after it was suspended for failure to pay child
support. This was a common problem in both the 11th and 26th JDs, although not in the 20th, where car
ownership was the lowest. In the 20th Judicial District, the most commonly expressed need was to have
a one‐on‐one explanation of a client’s child support situation. Clients did not report having classic child
support problems related to order establishment, modification, or enforcement at any of the project
sites, although in part this may be because they did not qualify for modification of their child support
orders or lower order levels.

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Table 9.13. Specific Child Support Needs Reported at Intake by PSP Participants, by Site
 Driver’s license reinstatement 50% 5% 65% 45%
 Explanation of client’s case 35% 85% 13% 38%
Help correcting child support errors 15% 15% 11% 13%
Order establishment 5% 0% 5% 4%
Order modification 5% 0% 3% 3%
Delaying enforcement actions 0% 0% 5% 3%
Genetic testing 0% 0% 3% 1%
Paternity establishment 0% 0% 0% 0%
Wage withholding 0% 0% 0% 0%
(20) (20) (37) (77)
The final analysis of child support performance considers the percentage of months with a payment and
the percentage of the obligation that was paid when controlling for various types of services that clients
might have received through PSP. Assistance that was provided was not always recorded on the MIS.
As a result, the table may not be an accurate portrayal of the services provided and their impact on
payment outcomes.
Based on the information available, receiving help with child support does not appear to produce a
significant increase in the number of months with payment or the percentage of the obligation that is
paid. There are significant differences in these two outcome variables based on whether the client
received help with employment or benefits. However, in both instances those receiving help had lower
performance on the child support measures. This may reflect the fact that those who needed help with
employment or benefits were in the worst financial situation and less able to meet their child support
obligations.
Client reports at three months post‐enrollment suggest that providing assistance with access and
visitation problems does result in improved child support performance. Those receiving help made a
payment in 53 percent of the months with a payment due, and paid a total of 45 percent of their
obligation, while the figures for those who did not receive help with access and visitation were 45 and
32 percent, respectively.

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Table 9.14. Child Support Payments Made by PSP Participants by Type of Assistance Received
Percentage of Months Percentage of Amount Due Number
with a Payment that was Paid Post‐Program
Client reports help with child support 47.9 36.3 482
Received help 50.6 39.6 51
Client reports help with employment 55.7 44.9 393
Client reports help with applying for benefits 49.5 37.8 457
Client reports help with access and visitation 45.4 31.9 349
Client reports help with any of the above 47.4 35.6 370
T‐test is significant at .05.
Participant Ratings of Their Child Support Situation Following Enrollment
At the three month check, most of the PSP participants described their child support situation as
unchanged relative to their situation at program entry. However, nearly a quarter said things were
better and a similar percentage said that things were worse.
Table 9.15. Client Assessment of Their Child Support Situation at Three Month Check, by Site
At the three‐month follow‐up, client reports the child support is 11th JD 20th JD 26th JD Total
Improved 21% 20% 26% 22%
The same 58% 52% 58% 56%
Worse 22% 29% 16% 23%
(180) (151) (112) (443)
Chi square is significant at .000.

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10. Participant Reactions
This chapter provides participant reactions to the Parent Support Program at two points in time
following enrollment. As described in chapter four, participants were contacted three and six months
following enrollment to gauge reactions to the PSP, determine employment status, and child and family
relationship status.
CPR contracted with an experienced independent telephone interviewer to conduct the three month
follow‐up check with PSP participants. The interviewer attempted to contact all enrollees in the
experimental group three months following enrollment. Ultimately, a total of 448 PSP participants in
the experimental group (out of the 1,016 with intake forms – 48%) were reached for the three month
check. The brief telephone check sought to determine the participants employment status, reaction to
the services received at the PSP, and family relationship status.
The six month follow up telephone interviews were conducted with members of the experimental and
comparison group by interviewers at Northern Illinois University’s Public Opinion Laboratory. The in‐
depth telephone interviews lasted an average of 30 minutes, and were completed with 410 PSP
participants in the experimental and comparison group. Interviews began in February 2011 and were
completed in March 2013 with up to 8 callback attempts placed before a final disposition was made.
The response rate for the follow up telephone interviews was 32.6%. Interviews were conducted in
English.
In both the three month check and six month follow‐up telephone interview, participants were asked
about aspects of their life compared to before enrollment in PSP. They were also asked to rate the
program and the services provided to them by the PSP. They were asked about how the program could
be improved and what actions the child support agency could take to provide greater assistance to
participants.
At both the three and six months interviews, over half of the PSP participants described their lives as
better than at program entry and approximately half of those interviewed in the 20th and 26th
jurisdictions reported the program to be very helpful, in the 11th JD 73 percent said the program was
either “very helpful” or “somewhat helpful.”
Table 10.1. Client Assessment of the Overall Quality of Life at Three‐Month Check, by Site
At the three‐month follow‐up, client reports quality of life has
Improved 54% 51% 62% 55%
Become worse 4% 11% 9% 7%
(182) (151) (109) (442)

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Table 10.2. Client Assessment of the Overall Helpfulness of the Program at the
Six Month Follow‐up Interview, by Site
Very helpful 36% 55% 50% 47%
Somewhat helpful 37% 31% 37% 34%
Not very helpful 13% 5% 5% 8%
Not at all helpful 14% 9% 8% 11%
(111) (145) (78) (334)
When asked how the program might be improved, most respondents favored more job training
opportunities, jobs with higher wages, more job openings for someone with the skills of a PSP
participant, and more assistance with transportation and rent.
Table 10.3. Client Recommendations on How to Improve PSP
at the Six Month Follow‐up Interview, by Site
Percentage reporting that it is very important for PSP to 11th JD 20th JD 26th JD Total
Offer more job training programs 88% 85% 85% 86%
Have more job openings for someone like me 95% 90% 91% 92%
Keep in touch after I get a job 63% 60% 67% 62%
Give more bus passes or money for transportation help 78% 83% 74% 79%
Give more help with rent 80% 81% 86% 82%
Have jobs that pay higher wages 86% 86% 84% 86%
(113) (146) (77) (336)
Respondents suggested a number of ways the child support agency could be of greater assistance to
program participants. This included offering lower child support orders, debt forgiveness, and delayed
enforcement during job training or job search activities.
Table 10.4. Client Assessment of PSP Services at the Follow‐up Interview, by Site
Percentage reporting that it is very important for PSP to 11th JD 20th JD 26th JD Total
Lower child support orders 78% 68% 48% 67%
Forgive some child support debt 66% 69% 46% 63%
Hold off on enforcement while I am looking for work 75% 74% 64% 72%
Stop child support orders so we can go to school for training 75% 69% 49% 66%
(113) (146) (77) (336)

In summary, the participants generally viewed the program very favorably, while recognizing its
limitations without the ability to create more job openings with higher wages or larger budgets to
provide assistance with transportation and housing. The PSP participants also were clear that greater
action on the part of the child support agency would be valued.

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11. Short-Term Job Training Pilot Project
Overview of Pilot Project
In December 2012, a small‐scale pilot demonstration project was developed to test the effectiveness of
a short‐term, paid, job‐training intervention. The pilot project involved a partnership with Goodwill
Industries in the 11th Judicial District (Chattanooga) and Goodwill of Middle Tennessee, Inc. in the 20th
Judicial District (Nashville). During January 2013 through April 30, 2013, NCPs were co‐enrolled in both
PSP and the Goodwill pilot project. The goal of the pilot project was to gauge the efficacy of providing
short‐term, paid, job training to unemployed and underemployed NCPs, and assess the utility of the
training effort in securing full‐time employment, and generating regular child support payments.
There is growing interest in the use of transitional and subsidized employment strategies with both
recipients of public assistance (e.g., National Supported Work Demonstration, AFDC Home Health Aid
demonstration), and ex‐offenders (e.g., Center for Economic Opportunities (CEO) program, the
Transitional Work Corporation (TWC), and the Transitional Jobs Reentry Demonstration (TJRD)).
Transitional jobs are also being used with NCPs in the Transitional Jobs Demonstration Project, a multi‐
site, random assignment project funded by the Department of Labor. To date, the research on
transitional jobs has yielded mixed results. For ex‐offenders, it appears that while transitional jobs do
not increase the likelihood of obtaining unsubsidized employment, they are associated with lower rates
of recidivism among high‐risk, former prisoners. Clearly, more research and demonstration activity on
paid training and work interventions with NCPs is needed.
Pilot Project Enrollment and Operations
From January through April 2013, 54 NCPs from the Parent Support Program were referred to the
Goodwill agencies in Nashville and Chattanooga for short‐term, paid and/or unpaid job training. Pilot
project operations differed in the 11th and 20th Judicial Districts.
In the 11th Judicial District, the Coordinator for PSP referred unemployed and underemployed NCPs to a
pilot project coordinator at Goodwill and NCPs were told where and when to appear for enrollment and
assessment. At Goodwill, case managers collected information on the NCP’s job history, education, and
job training needs. Next, NCPs were required to participate in a job readiness orientation session that
covered résumé writing, interviewing skills, and proper business attire and conduct. Afterward, the NCP
began 10 weeks of paid job training. During the 10‐week program, the NCP earned $7.50 per hour and
worked a 40‐hour work week in the Goodwill retail store. The program was supervised by a Goodwill
staff member who provided coaching on proper work conduct, including timeliness, dress, work
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The Goodwill Career Counselor assisted NCPs who completed the 10‐week training program with
securing full‐time stable employment. Some trainees were hired for full‐time work at a Goodwill retail
store. If no position was suitable or available at Goodwill, the career counselor provided the NCP with
direct links to area employers and jobs. Throughout the 10‐week program, Goodwill offered the NCP
supportive services, such as bus passes. The PSP Coordinator was available to address other issues that
arose, such as access and visitation problems, child support issues, and/or community referrals. The
Goodwill Career Counselor tracked and monitored the NCP’s participation and status in the job training
program and reported back to the PSP Coordinator on these activities as well as employment and
earnings outcomes, when available.
In the 20th Judicial District, Goodwill Industries of Middle Tennessee provided assessment and job
training services to PSP participants. Following a thorough assessment, The Goodwill Career Counselor
recommended that the NCP pursue a career path and the corresponding Goodwill training program.
The NCP was invited to attend a full‐day job readiness class and a weekly “Job Jam,” which is a job club
where job seekers meet as a group and have their job‐related questions answered by career counselors
at Goodwill. The Job Jam is also an opportunity for enrollees to network, provide peer support, and
watch videos on work‐related topics, practice interview skills, and complete job applications. Goodwill
of Middle Tennessee also offered a variety of training programs to pilot project participants, including
forklifting, computers, construction, call centers, health care careers exploration classes, and retail
training. The construction training program offered a paid stipend of $100 per week. The other types of
training programs offered up to four weeks of paid training, followed by a possible offer to hire by
Goodwill. Goodwill also provided a series of classes for ex‐offenders on how to talk about their criminal
past in job interviews. In addition, through community partners, they offered interview training, and
assistance in expunging criminal records.
The Goodwill Career Counselor assisted pilot project participants who completed the training program
in obtaining stable full‐time employment, including providing job leads. Those who enrolled in the
program were eligible to receive bus passes and other supportive services. As in Chattanooga, the
Coordinator was available to help with other barriers, including helping with child support problems,
parenting time issues, and/or referrals to community services.
Profile of Enrollees
From January through May 2013, 54 noncustodial parents enrolled in the Goodwill Pilot Job Training
Program: 32 in Nashville and 22 in Chattanooga. Not surprisingly, the demographic characteristics of
pilot project participants matched those of PSP enrollees. The majority were male (83%) and African
American (78%). On average, they were three years older than PSP participants (37 versus 34). Those
with a high school degree or GED totaled 39 percent, while 35 percent had less than a high school
diploma. Compared to PSP participants, the 54 NCPs in the Goodwill Pilot were less likely to be
employed at enrollment (2% versus 11%) and more likely to be unemployed (87% versus 80%).

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Table 11.1. Employment Status of Goodwill Pilot and A comparison between the
PSP Participants at Enrollment Goodwill Pilot enrollees and all
Goodwill Pilot All PSP PSP enrollees on the duration
Employment status at intake of their most recent or current
Employed full time 2% 11% length of unemployment
Employed part time 7% 6% reveals that both groups had
Seasonal/temporary employment 3% 3% been unemployed for an
Unemployed 87% 80% average of 17 months (16.6 vs.
Number (54) (1,001) 17). Similarly, 4 percent of
those in the Pilot group and 7 percent of all PSP enrollees reported that they were receiving
unemployment benefits.
Table 11.2. Unemployment History for Goodwill Pilot and PSP Participants
Goodwill Pilot All PSP
Length of unemployment
Mean 16.6 months 17 months
Median 12 months 11 months
Number (40) (689)
Currently receiving unemployment benefits 4% 7%
Number (47) (676)
Table 11.3 provides a comparison of the most recent job held and benefits information for those
enrolled in the Goodwill Pilot Demonstration compared to all PSP enrollees. The comparison shows few
differences in employment history between the two groups.

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Table 11.3. Most Recent Employment Information for As shown in Table 11.3, both Pilot
Goodwill Pilot and PSP Participants and PSP enrollees earned an
Goodwill Pilot All PSP average wage of approximately
Hourly wage $9.50 per hour. Median wages of
Mean $9.57 $9.45
Pilot enrollees were $9.50 per
hour compared to $8.50 for PSP
Median $9.50 $8.50
enrollees. Both groups worked
Range $7‐$16 $2.13‐$40
an average of 33 to 35 hours per
Number (45) (685)
week at their most recent job,
Number of hours worked per week
and 78 percent of both groups
Mean 32.7 35 reported that their current or
Median 38.5 40 most recent employer had
Range 8‐50 6‐70 offered no benefits.
Number (45) (685)
 Types of benefits offered: Marriage was equally rare for
Health insurance only 4% 6% NCPs in the two groups (20%
versus 17%), but cohabitation
Retirement benefits only 4% 1%
patterns differed slightly for
Both health and retirement
14% 15% Goodwill Pilot and PSP
benefits
None 78% 78% participants. Just under one third
of Pilot enrollees (32%) reported
Number (50) (898)
they were never married and had
never lived with the other parent,
as compared with 47 percent of PSP participants. And while nearly half (48%) of Goodwill Pilot
participants reported cohabiting with the other parent, this was the case for only 37 percent of PSP
participants. The majority of both groups reported having only one child (64% and 65%, respectively).
Goodwill Pilot enrollees were slightly more apt than PSP participants to report having a more hostile
relationship with the other parent (27% versus 22%).
Table 11.4. Relationship Situation at Intake Reported by Goodwill Pilot and PSP Participants
Were you ever married to the custodial parent?
Never married and never lived together 32% 47%
Never married, lived together 48% 37%
Yes, we were married 20% 17%
Number of children with the custodial parent
One 64% 65%
Two 27% 21%
Three to five 6% 13%
More than five 4% 1%
Nature of your relationship with the other parent
Angry and hostile 27% 22%

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Table 11.4. Relationship Situation at Intake Reported by Goodwill Pilot and PSP Participants
Fairly cooperative 29% 29%
Cooperative 19% 32%
No relationship, no contact 17% 15%
Other 8% N/A
(52) (953)
At intake, nearly a quarter of the participants in both groups reported seeing their children only once or
twice a year or less. On the other hand, nearly 40 percent reported seeing their children at least weekly.
Although many NCPs saw their children frequently, over 40 said there was no visitation plan, 14 percent
said it was a verbal agreement, and 9 percent were not sure if they had a visitation plan. Approximately
one‐third of the enrollees in the Goodwill Pilot believed that they had a court‐ordered visitation plan.
Table 11.5. Comparison of Visitation Status for Pilot and PSP Participants
About how often do you see the children at intake
More than once a week 16% 16%
About once a week 22% 18%
About once or twice a month 22% 17%
About every other month 8% 6%
About once or twice a year 8% 7%
Never 16% 16%
Other 10% 9%
Does NCP have a visitation plan?
No 44% 65%
Not sure 9% 4%
Yes, verbal plan 15% 13%
Yes, written plan 32% 18%
(54) (927)

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Pilot Demonstration Outcomes
Participation in the Goodwill Pilot Program (n=54)
As of report writing, only limited data on
outcomes was available for the 54 PSP enrollees
10% who participated in the Goodwill Pilot. As
Did not qualify previously noted, enrollment occurred from
24%
January to April 30, 2013, and the job training
22% 44% programs lasted approximately 4 to 10 weeks.
Dropped out
Because of the short time frame available for
enrollment, training activities, and the conduct of
a follow‐up assessment, employment and child
support outcomes are limited and should be
Figure 11.1 viewed as preliminary and ongoing.
Ten percent of the 54 NCPs enrolled in the Pilot Project did not qualify for the training program,
primarily because they had an open criminal case. Just under half (45%) of participants who were
referred to the Goodwill Pilot subsequently dropped out. The remaining 24 percent either completed
the job training program at Goodwill and secured full‐time employment or were still actively
participating in training and job search with Goodwill (22%) as of report writing.
Employment and Child Support Outcomes
Table 11.6 shows that most noncustodial parents in the Goodwill Pilot had an average of 1.7 child
support cases. Their monthly obligation for current support averaged $388. In addition, they owed an
average of $193 per month for their child support arrears. Their total arrears balances averaged
$25,000 and ranged from $100 to over $130,000.
Table 11.6. Child Support Profile for Goodwill Pilot Demonstration Enrollees
Number of Child Support Cases (n=54)
Average 1.7
Median 1.0
Range 1‐7

Total Monthly Current Support Due Across all Cases
Average $388
Median $351
Range $100‐$935

Total Monthly Arrears Payment Due Across all Cases
Average $193

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Table 11.6. Child Support Profile for Goodwill Pilot Demonstration Enrollees
Median $130
Range $7‐$2,308
Total Arrears Balance Across All Cases
Average $25,015
Median $16,840
Range $100‐$130,830

One way to gauge

Table 11.7. Verified Employment and Wage Assignment Activity According to
employment
Child Support Records for Goodwill Pilot Demonstration Enrollees Pre‐ and
outcome is to assess
Post‐Program Enrollment
the incidence of
At Enrollment At Follow‐up
Post Enrollment verified employment
TCSES shows verified employer 2% 38% on the automated
TCSES shows income assignment in effect 28% 40% child support system
and the
implementation of automatic income assignments. Table 11.7 shows that between enrollment into the
Goodwill Pilot and the conduct of a post‐enrollment data check in August 2013, the percentage of cases
with a verified employer recorded in the TCSES system rose from 2 to 38 percent. The percentage of
cases with an income assignment rose from 28 percent at enrollment to 40 percent at follow up. This
suggests that NCPs who participated in the Goodwill Pilot obtained new employment following their
enrollment and were poised to be able to earn regular income and make child support payments.
Table 11.8 shows the percent of current support paid that was due in the months prior to and following
enrollment in the Goodwill Pilot, compared with PSP enrollees. There was little change in payment
performance following enrollment in the Goodwill Pilot and the total PSP population.
Table 11.8. Percentage of Current Support Due that was Paid Pre‐ and Post‐
Program for Participants in Goodwill Pilot, PSP, and Comparison Group
Goodwill Pilot Total PSP Comparison
Percentage of amount due that was paid pre‐program 31% 33% 60%
Percentage of amount due that was paid post‐program 27% 36% 52%

While there was little change in overall payment performance among NCPs following their enrollment in
the Goodwill Pilot, the percentage of NCPs who paid nothing declined, dropping from 33 percent in the
months before their enrollment to 20 percent in the months following. This suggests that payment of
child support began to improve following participation in the pilot project and total non‐payment
declined.

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Table 11.9. Percentage of Current Support Due that was Paid Prior to and Following
Enrollment in Goodwill Pilot Demonstration
Goodwill Pilot
Percentage of Current Support Paid Pre Post
Percentage paying nothing 33% 20%
Percentage paying 1‐25% 20% 40%
As in the child support payment analysis conducted with all PSP enrollees, CPR examined the number of
months in which NCPs in the Goodwill Pilot made any payment to determine if there is an increase in
general payment behavior following enrollment in the program. The results are very preliminary —
again, due to the short time frame available for follow up. Nevertheless, there does appear to be a slight
increase in the frequency of payment. In the six months prior to enrollment in the Goodwill Pilot
Demonstration, a median of six payments were due and a median of one payment was paid. In the six
months following enrollment, a median of six payments were due and a median of two payments were
paid.
Table 11.10. Average Number of Months with Payments Due and Average Number of Months with
Payment Made For Goodwill Pilot Demonstration Cases
Months with Support Months with Support Percentage of Months with a
Due Paid Payment
Goodwill Pilot Enrollees
Pre‐Program
Average 4.9 1.9 33%
Median 6.0 1.0 17%
Post‐Program
Average 4.4 2.0 38%
Median 6.0 2.0 50%

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Pilot Demonstration Reactions
In July and August 2013, open‐ended telephone interviews were conducted with Goodwill Pilot
Demonstration enrollees. The purpose of the telephone interviews was to gauge reactions to the
Goodwill Pilot, identify problems with enrollment and service
delivery, and determine if participation in Goodwill services had
One NCP heard about the
led to employment. In addition, the interviewer sought to
Goodwill Pilot at the PSP
determine why referred NCPs had chosen not to participate in a
orientation and felt the
Goodwill job training program.
opportunity was “good news”
and “gave him hope.” He The telephone interviewer made up to eight attempts to reach
appeared at Goodwill, each enrollee before a final interview disposition was entered and
enrolled, and was assigned a a total of 11 interviews were completed. Completed interviews
career counselor. lasted approximately 20 minutes. The interviews are not a
representative sample of all Goodwill Pilot Demonstration
The NCP received
enrollees and reflect the opinions of those who could be reached.
employment services
including classes on general All but two of the 11 interviewees had followed up with their
employment skills, referral to the Pilot Project and participated in job training at
interviewing, résumé writing, Goodwill. At the time of the interview, five of the 11 noncustodial
and computer skills, and parents were employed either at Goodwill or at a job that Goodwill
chose to participate in an had helped them to find. Two NCPs did not follow up with referral,
unpaid opportunity that dealt and one respondent was still actively participating in the paid job
with specialized warehouse training program and earning $7.25 per hour. Each of the NCPs
training. interviewed reported that the program was very helpful and useful
and would recommend it to others.
Goodwill supported his job
search and provided job leads The two participants who did not follow up on the referral to the
every week, and he got a job Goodwill Pilot gave only vague reasons for their decision not to
within weeks. He is now participate. One female NCP stated that she just didn’t get around
working full time in a to going to Goodwill to sign up, and the other NCP stated that he
temporary, warehouse did not have transportation to get there. They both appreciated
position earning $13 per the offer to help and thought that they might go to Goodwill at
hour, and hopes to be hired some point in the future.
permanently soon.
Finally, most of the Goodwill Pilot enrollees who participated in
the telephone interview had positive comments and reactions.
They tended to describe it with terms such as “useful” and
“helpful.” One NCP said the enrollment process was “easy” and the staff was “cool and taught me a lot
of stuff.” Another NCP said that he recommended the program to a friend.

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12. Summary and Conclusions
Summary
In October 2009, the Tennessee Department of Human Services (DHS) was awarded a grant from the
federal Office of Child Support Enforcement (OCSE) to develop, implement, and evaluate a program
providing employment, parenting time, and case management services to low‐income, unwed parents in
the child support program in three judicial districts across Tennessee: the 11th (Chattanooga), 20th
(Nashville), and 26th Judicial Districts (Chester, Henderson and Madison counties, including the city of
Jackson). The program, called the Parent Support Program (PSP), was conducted in collaboration with
the Tennessee Administrative Office of the Courts (AOC). The new project built upon a previously
funded OCSE demonstration project conducted by DHS and AOC (Tennessee Parenting Project) in the
same three judicial districts that focused on providing parenting time services to low‐income parents in
the child support program. PSP enabled child support agencies in these three jurisdictions to add
personnel who could offer job‐focused services to the parenting services that were being offered to
child support families. The 2011 unemployment rate in the 11th Judicial District was 8.7 percent; in the
20th, it was 8.2 percent; and in the 26th, it was 12.3 percent (Henderson County). The 2011
unemployment rate in Tennessee as a whole was 9.5 percent and 9.0 percent for the United States.
Coordinators retained through the Parent Support Program in each of the three local child support
offices in the 11th, 20th, and 26th Judicial Districts, began to outreach to child support workers, the
court, and local community agencies to generate referrals for the Parent Support Program in January
2010. During the next 27 months (until March 2013), 1,016 noncustodial parents were referred to PSP
and enrolled in the project. As part of the enrollment process, Coordinators conducted screenings with
referred noncustodial parents to identify problems that reduced their ability to support their children
both emotionally and financially. Since a critical service need that most low‐income noncustodial
parents faced was unemployment or underemployment, PSP staff developed partnerships with local
workforce services providers and other community agencies that provide employment services.
However, because of high unemployment during the program enrollment period and the absence of
additional workforce funding, local workforce agencies were not able to provide additional staff or
services to the PSP population beyond what was available to the general public. As a result,
employment and job‐readiness services were primarily provided by the Coordinators at the child
support agency. In addition to employment services, the Coordinators were available to work with
interested parents to develop a parenting plan and provide referrals to other public and private agencies
for needed supportive services.
Plans to randomly generate a non‐treatment comparison group that only received a list of community
resources were dropped in favor of recruiting parents with similar problems who appeared at child

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support agencies in jurisdictions selected to match the characteristics of the project sites. The 6th was
selected to match the 11th, the 16th and 18th were selected to match the 20th, and the 28th was
selected to match the 26th. Although a comparison group consisting of 466 cases was generated in
matched judicial districts and parents were given a list of community resources, the comparison group
proved to be less helpful than originally anticipated since the information obtained about these cases
was limited to background information on the custodial parent (who was typically the parent most likely
to appear at the child support agency) and child support payment information obtained from the
automated child support enforcement system. More to the point, the limited information that was
available showed that the two groups were dissimilar in many respects. For example, the comparison
group had higher levels of employment and better child support payment behaviors than the treatment
group at program enrollment.
In the last year of the Parent Support Project, DHS and AOC developed a pilot project to test the
effectiveness of providing short‐term, paid, job‐training in generating longer‐term employment and
regular child support payments for noncustodial parents (NCP). Except for those enrolled in the pilot,
NCPs in the Parent Support Project were offered employment‐focused services that dealt with soft skills
and job search activities such as résumé preparation and interview skills. They rarely had access to job
training, and none had the opportunity to participate in paid training programs. The employment
services for the job training pilot were provided by the Goodwill agencies in two of the project sites: the
11th Judicial District (Chattanooga) and the 20th Judicial District (Nashville). From January 2013 through
April 30, 2013, 54 NCPs were referred to the Goodwill Pilot Demonstration project and their progress
was monitored through August 2013.
The information collected for the evaluation conducted by the Center for Policy Research of Denver,
Colorado, was obtained from multiple sources:
 A screening form distributed by child support workers in matched sites to identify parents with
problems that might affect their ability to support their children financially and/or emotionally
and generate a non‐treatment comparison group;
 A Management Information System consisting of an access database that was uploaded to a
cloud server through which Coordinators recorded information on parents that enrolled in the
Parent Support Project, including demographics, employment, barriers to employment and child
support payment, parent‐child contact, and service delivery.
 A three‐month follow‐up telephone interview with participants to determine their employment
status and the usage of various services and referrals available through PSP.
 A six‐month follow‐up telephone check with PSP participants and parents in the comparison
group to assess the status of their employment and parenting problems, involvement with their
children, and reactions to the utility of printed information about community resources versus
job‐focused and parenting services delivered through the PSP. Professional telephone
interviewers with the Northern Illinois University Public Opinion Laboratory attempted to

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conduct interviews with 1,257 individuals in the treatment and comparison groups and
completed 410 for a response rate of 32.6 percent (38% for the treatment group and 19% for
the comparison group).
 A data extract from the Tennessee Child Support Enforcement System (TCSES) for all cases in the
treatment and comparison group that included information on case characteristics, monthly
order levels, arrears balances, and payment patterns in the 24 months prior to and following
enrollment in the Parent Support Program.
 For the Goodwill Pilot Project, Coordinators and Goodwill Case Managers recorded background
and service delivery information for participants; project evaluators conducted open‐ended,
post‐enrollment telephone interviews with 11 participants on reactions to the program; and
child support staff recorded payment behaviors before and after enrollment in the Pilot Project.
Demographic, Educational, Employment, and Financial Characteristics of PSP Participants
During January 2010 to March 30, 2013, 1,016 noncustodial parents enrolled in PSP across the three
project sites: 342 in the 11th, 435 in the 20th, and 239 in the 26th. The following are selected
characteristics of the noncustodial parents who enrolled in PSP.
 African‐American males (83%), ranging in age from 18 to60, with an average age of 30 to 35.
 Nearly half (47%) completed high school or attained a GED, but 30 percent had lower levels of
educational attainment.
 Nearly all (92% and 82%) of the participants in the 11th and 20th Judicial Districts were
unemployed when they enrolled in PSP, and a majority (54%) of the participants in the 26th JD
were unemployed.
 On average, PSP participants had been unemployed for 17 months, and only 6 to 11 percent
were receiving unemployment benefits.
 Relatively few (17% in 11th, 26% in the 20th, and 53% in the 26th) had received assistance at a
local Workforce Center.
 On average, PSP participants had earned $9.45 per hour at their most recent job, with the
median being $8.50.
 Although PSP participants had worked an average of 35 hours in their prior job, few reported
receiving health insurance and/or retirement benefits (22%).
 Most participants (56%) had held only one or two different job in the past five years, with the
average amount of tenure at a single job being 49 months.
 Three‐quarters of all PSP participants characterized their financial situation as “poor” and
reported annual earnings of $10,000 or less.
 Fewer than half (42%) of PSP participants reported owning a car.

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 More than half (52%) reported receiving food stamps, with 41 percent agreeing with the
statement, “I sometimes run out of money for food before the end of the month,” and 33
percent affirming that they “had more debt than I will ever be able to pay off.”
Barriers to Employment
PSP participants reported many barriers to employment and payment of child support. The top five
problems noted by participants across the three project sites were:
 Limited work history (80%).
 Lack of job skills (78%).
 Prior incarceration (77%).
 Lack of a car or a reliable transportation (60%).
 Lack of a driver’s license (60%).
Smaller percentages (but substantial proportions in the 20th JD) reported problems with housing and
homelessness (22%), health issues (17%), drug or alcohol problems (13%), mental health issues (13%),
and/or domestic violence (5%)
Family Characteristics, Parenting Plans, and Parent‐Child Contact
 Very few (16%) PSP participants had been married to the other parent, with 37 percent
reporting cohabitation and 47 percent reporting neither marriage nor cohabitation.
 Two‐third (65%) reported having one child with the other parent and 21 percent reported two.
 More than half (61%) reported cooperative or fairly cooperative relationships with the other
parent, and only 22 percent characterized them as “angry and hostile,” although this response
was selected by 43 percent of PSP participants in the 26th JD.
 Only small fractions of PSP participants reported having a restraining order (2%), a supervised
visitation order (3%), or an open child protection case (2%).
 A third (34%) reported parent‐child contact of once a week or more, a quarter (23%) reported
little to no contact, and 23 percent reported monthly, bi‐monthly, or semi‐monthly contact.
 The main reason PSP participants gave for not seeing their children more often was the
“custodial parent did not want visits” (78%). Another reason reported by nearly a third (31%)
was problems in the PSP participant’s life such as drugs or jail.
 Only 18 percent of PSP participants had a written visitation plan, with 65 percent reporting no
plan at all.

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Child Support Obligations
PSP participants had substantial child support obligations and wanted help with their child support
situation.
 Approximately two‐thirds of PSP participants had one child support case, and another quarter

had two.
 On average PSP participants had child support cases that were seven years old, with only 11
percent having cases that were under one year.
 Nearly all owed past‐due child support with arrears balances that averaged $18,000 in the 11th
JD, $22,000 in the 20th JD, and $6,000 in the 26th JD.
 Average obligations for current monthly support for project participants were $273 in the 26th
JD, $370 in the 11th JD, and $406 in the 20th JD.
 Total average monthly obligations for current monthly support and arrears were $323 in the
26th JD, $447 in the 11th JD, and $526 in the 20th JD.
Services Desired by Participants
NCPs who enrolled in the Parent Support Program were interested in receiving various types of services.
The top five services of interest selected by at least 82 percent of participants involved job‐focused
services:
 Help finding a job with benefits (90%);
 Help finding any type of job (88%);
 Help finding a job with better pay (88%);
 Help finding a job with more hours (83%); and
 Help with job search and applying online (82%).
In addition, most participants wanted on‐the‐job training (73% overall, but 95% in the 11th JD, and 85%
in the 20th JD). A similar proportion wanted to participate in job readiness classes where they could get
help with résumé preparation and interviewing skills (72% overall, but 97% in the 11th JD, and 69% in
the 20th JD). Nearly all participants (98%) in the 11th and 20th Judicial District wanted help with
transportation.
Many PSP participants wanted help with their child support cases.
 Half of PSP participants in the 11th JD and 65 percent in the 26th JD wanted help with driver’s
license reinstatement (45% across the three project sites).
 Approximately one third (38%) wanted a one‐on‐one explanation of their child support situation
and options, and 13 percent were interested in getting errors in their case corrected.

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Some PSP participants wanted help with applying for various types of benefits.
 Approximately 20 percent of participants wanted help applying for food stamps and/or
unemployment benefits.
 Approximately 10 percent wanted help applying for Medicaid and/or disability benefits.
Finally, a substantial proportion of PSP participants who lacked a formal parenting time plan wanted
help with developing one and with co‐parenting.
 A third (31%) of those without a visitation plan wanted help developing one, with 58 percent of
participants in the 26th JD reporting interest in this type of assistance.
 Many parents in the 26th JD (72%), who reported the highest levels of conflict with the other
parent, wanted help with co‐parenting.
Service Delivery and Helpfulness Ratings
Interviewed PSP participants reported receiving a variety of employment‐focused job services.
 88 percent reported getting help with job listing and posting.
 60% reported getting job leads and counseling from PSP staff members.
 49% reported participating in job fairs and hiring events.
 49% reported getting help with résumé preparation.
 47% reported making cold calls to employers and going to workshops on interviewing and job
behavior, respectively.
In addition, approximately one‐quarter reported receiving bus passes or gas money and training on
using computers, respectively. With few exceptions, PSP participants rated the assistance they received
very highly, with upwards of 75 percent characterizing it as “excellent” or “good.”
With respect to parenting time, interviewed PSP participants reported receiving a variety of services:
 65 percent reported receiving an explanation of their parenting time situation.
 54 percent reported getting help with developing a parenting time plan.
 21 percent reported help with changing an existing parenting time plan.
As with ratings of job‐focused services, nearly all (70% to 79%) of interviewed PSP participants
characterized the access and visitation services that they received as “excellent” or “good.” Overall,
nearly half (48%) of interviewed PSP participants rated the program as “very helpful” and another 34
percent termed it “somewhat helpful.”

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Outcomes Dealing with Employment, Child Support, Parent‐Child Contact, and Financial Well‐Being
PSP participants interviewed at three and six months following enrollment reported strong increases in
employment.
 In the 11th JD, rates of employment rose from 8 percent at program enrollment to 67 percent at
the three‐month check, to 45 percent at the six‐month follow‐up interview.
 In the 20th JD, rates of employment rose from 8 percent at program enrollment to 46 percent at
the three‐month check, to 50 percent at the six‐month follow‐up interview.
 In the 26th JD, rates of employment rose from 46 percent at program enrollment to 65 percent
at the three‐month check, to 69 percent at the six‐month follow‐up interview.
Child support payments improved significantly among PSP participants following their enrollment.
 The percentage of months during which PSP participants made a child support payment prior to
and following program enrollment rose from 43 to 48 percent in the 11th JD, 37 to 38 percent
in the 20th, and 52 to 62 percent in the 26th JD. The differences between pre‐ and post‐
program payment were only statistically significant in the 26th JD.
 The percentage of child support due that was paid prior to and following enrollment in PSP rose
significantly for PSP participants, from 33 percent to 36 percent.
 Those who received help with access and visitation paid 45 percent of their child support
obligation, as compared with 32 percent for those who did not receive help with parenting time
— a difference that was statistically significant.
Interviewed PSP participants were most apt to report that their parenting situation hadn’t changed or
had improved.
 44 percent reported their overall parenting situation had stayed the same, and 42 percent said it
had improved.
 38 percent said their level of parent‐child contact had stayed the same, and 37 percent said it
had increased.
 46 percent said that the regularity of visitation with their children had stayed the same, and 32
percent said it had improved.
 Approximately 20 percent of interviewed PSP participants reported that their parenting
situation had deteriorated.
Asked to compare their overall financial situation since enrolling in PSP, interviewed participants
reported few changes. Their financial situation remained grim regardless of whether they had received
employment services in PSP.
 More than half (53%) reported that their situation was unchanged, and 25 percent reported it
was worse.

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 Nearly three quarter (69%) reported running out of money for food, having their utilities turned
off, and/or having to stay with friends or family.
 Identical proportions of PSP participants reported improvements, deteriorations, and no change
in their financial situation regardless of whether they received job‐focused services in PSP.
Goodwill Job Training Pilot
 Of the 54 noncustodial parents who enrolled in the job training pilot project, 10 percent did not
qualify because they had an open criminal case, 45 percent dropped out, and the remaining 24
percent either completed job training and secured full time employment or were still actively
participating in job training and job search (22%).
 The incidence of verified employment for participants in the Goodwill Pilot Project rose from 2
percent at enrollment to 38 percent when project data were collected, while the incidence of an
active income assignment rose from 28 to 40 percent.
 The percentage of participants in the Goodwill Pilot Project who paid nothing toward their
current child support obligation dropped from 33 to 20 percent following enrollment.
 The median number of months in which participants made a child support payment in the six
months prior to and following their enrollment in the Goodwill Pilot Project rose from one to
two.

Conclusions
The evaluation of the Parent Support Program yields the following conclusions about the delivery of
employment services to noncustodial parents in the child support caseload.
Many noncustodial parents seen at the child support agency need and want help with employment.
Nearly all (82 to 92%) the NCPs who enrolled in PSP in the 11th and 20th Judicial Districts were
unemployed, as were 54 percent of NCPs in the 26th. These rates of unemployment were dramatically
higher than rates for the 11th, 20th, and 26th Judicial Districts as a whole, which ranged from 8.2 to 12.3
percent. They faced difficult financial situations. More than half reported running out of money for
food, only 17 percent reported having a bank account, and 50 to 71 percent characterized their financial
problems as serious. Approximately 90 percent of PSP participants wanted help finding any job, a job
with benefits, or a job with more hours. More than three‐quarters wanted help with applying for jobs
online and/or job training
Programs like PSP attract participants at all stages of child support case processing. Although the
OCSE initiative was designed to focus on new child support cases recruited at order establishment, NCPs
who enrolled in PSP had child support cases ranging in age from one to 24 years, with the average being
seven years old. Only 11 percent of cases were one year or less. These patterns suggest that

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recruitment efforts should be broad and not restricted to a certain age range or stage of case
processing.
Low‐income noncustodial parents face many barriers to obtaining and retaining employment. At
program intake, between 59 and 80 percent of NCPs reported that a limited work history, a lack of job
skills, prior incarceration, the lack of a car or reliable transportation, not having a driver’s license, and
lacking a high school diploma or GED presented barriers to finding employment. This is similar to what
other jurisdictions implementing employment programs for low income NCPs have found. In the
Massachusetts Parent Support Program, 42 to 48 percent or participants lacked a reliable car or access
to public transportation, a driver’s license, and/or a high school diploma or GED. More than a third
(37%) had been previously incarcerated, and one‐fifth stated that their lack of job history (23%) or job
skills (20%) prevented them from getting a job. In Arapahoe County, Colorado, half of the Parents to
Work participants were ex‐offenders, a third lacked transportation, and 26 percent said that being on
parole or probation presented barriers to employment.
Many low‐income noncustodial parents who enroll in programs for employment assistance drop out
or participate at only minimal levels. Nearly half (45%) of the 54 noncustodial parents who enrolled in
the Goodwill Job Training Pilot Project dropped out, and another 10 percent did not qualify because
they had an open criminal case. Attrition is high in other, similar employment programs for
noncustodial parents. In the Parents to Work Program conducted in Arapahoe County, Colorado, 31
percent only enrolled and did not receive any program services while another 23 percent participated at
minimal levels. The percentage that participated more fully was 46 percent. In the Massachusetts
Parent Support Program, 34 percent of participants only completed the enrollment process and another
6 percent only attended an orientation session. The remaining 60 percent participated more fully.
PSP increased employment among participants. Employment increased following enrollment in PSP,
with the percentage of employed noncustodial parents rising from 8 percent at program enrollment in
the 11th and 20th Judicial Districts to 45 and 50 percent at the six‐month follow‐up interview,
respectively. In the 26th Judicial District, the rate of employment rose from 46 percent at program
enrollment to 69 percent when PSP participants were interviewed six months after enrollment. These
rates of employment compare favorably with rates observed in other programs for unemployed NCPs.
For example, in Arapahoe County’s Parent’s To Work program, 54 percent of noncustodial parents
obtained employment following enrollment in the program, and in the Massachusetts Parents to Work
Program, only 27 percent of enrolled NCPs became employed (31% of those who received employment
services).
PSP increased child support payments among participants. Child support payments improved for
participants following their enrollment in PSP. The percentage of child support due that was paid prior
to and following enrollment rose significantly from 33 to 36 percent. The percentage of months during
which participants made a child support payment also rose following enrollment, although the increase
was statistically significant only in the 26th Judicial District, where it increased from 52 to 62 percent.

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Child support obligations were substantially lower among participants in the 26th JD, with average order
levels of $273 per month versus $400 in the 11th and 20th JDs.
Preliminary evidence suggests that noncustodial parents who participate in paid training programs
experience improvements in employment and child support payment. Although it was only possible to
examine employment and child support payment outcomes for noncustodial parents who participated
in the Goodwill Training Pilot Project, the early results are promising. A quarter of the 54 noncustodial
parents who enrolled completed job training and another 22 percent were still participating in training
and looking for work. The incidence of verified employment among participants rose from 2 percent to
38 percent, and the incidence of active income assignments increased from 28 to 40 percent. During the
six months prior to and following enrollment, the median number of months in which participants made
a child support rose from one to two.
Although child support payment patterns improved following PSP participation, they remained far
from complete. Payment performance increased significantly following program enrollment, but it only
rose from 33 to 36 percent, and only 22 percent of interviewed PSP participants thought their child
support situation had improved following program participation. The most substantial increases
occurred in the 26th Judicial District, where average order levels were the lowest ($273 versus $400 in
the 11th and 20th.) Noncustodial parents at this site were substantially more likely than their
counterparts in the 11th and 20th Judicial Districts to agree that they could afford to pay their child
support obligation (39% versus fewer than 10%.) Not surprisingly, average arrears balances ranged from
$6,000 in the 26th JD to $18,000 and $22,000 in the 11th and 20th JDs, respectively. Child support order
levels should reflect actual earnings and an ability to pay.
Few parents have formal parenting time arrangements, and many want help developing a formal
parenting plan to submit to the court. Although most PSP participants were seeing their children
frequently prior to program enrollment, only 18 percent had a written visitation plan and 78 percent of
parents who were not seeing their children as often as they would like blamed it on the custodial parent
not wanting visits. Thirty percent of noncustodial parents without a parenting plan wanted help
developing one (58% in the 26th Judicial District), and 30 percent wanted help with co‐parenting (72% in
the 26th Judicial District). These patterns are consistent with those observed in the Massachusetts
Parent Support Program, where only 18 percent had a written parenting plan and 22 percent were
interested in working with program staff to develop one.
Helping parents with their parenting time problems improves the payment of child support. NCPs
who received help with parenting time were significantly more likely to show improvement in child
support performance. PSP participants receiving help with visitation made a payment in 53 percent of
the months with a payment due, and paid a total of 45 percent of the obligation, while the figures for
those who did not receive help with access and visitation were 45 and 32 percent, respectively. This is
consistent with payment patterns observed in the Tennessee Parenting Project, where average child
support payments for noncustodial parents who received parenting time services rose from 54.2 to 57.6
percent in the 12 months following program enrollment—a statistically significant increase that was not

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observed among noncustodial parents in the low‐level treatment group who only received printed
information about community resources.

Only a fraction of PSP participants have court orders dealing with family safety. According to
interviewed PSP participants, the incidence of restraining orders (2%), supervised visitation orders (2%),
and open child protection cases (3%) was very low. To contrast, 19 percent expressed concern about
the children’s safety with the custodial parent. Self‐reports of socially undesirable behaviors are
inherently unreliable, although it is relevant that higher proportions of PSP participants disclosed other
socially undesirable problems such as drug and alcohol (13%), mental health issues (13%), and housing
instability (22%).

Programs like Parent Support Program generate high levels of user satisfaction and better ratings of
the court and the child support agency. Most (82%) participants rated PSP as “very” or “somewhat”
helpful, and at least 80 percent classified résumé preparation, computer training, workshops or classes
on interviewing or preparing for work, and ESL or GED classes as “excellent” or “good” features of the
program. During the three‐month follow‐up interviews, more than half of the participants (55%) said
that their lives had improved since enrolling in PSP. To improve the program, at least 80 percent of the
respondents suggested offering more job training programs, having more job openings, having jobs that
pay higher wages, and helping with rent.
Although they are appreciated, programs like PSP do not change the grim financial situation that low‐
income NCPs face. The percentage reporting that their financial situation had not changed or had
worsened was unchanged for those with and without job‐focused services. Both before and after
enrollment more than half reported running out of money for food before the end of the month, nearly
half reported having to stay with family or friends because they lacked housing, and 16 percent had had
their utilities turned off. Taken together, 69 percent reported one or more of these consequences even
after enrolling in PSP and participating in program services. Low‐income noncustodial parents in the
child support system face considerable barriers to employment, earnings, child support payment, and
self‐sufficiency that are not readily addressed in programs that aim to help.
Child support offices should develop more responsive policies for low‐income NCPs. When they
enrolled in PSP, three quarters of participants reported annual earnings of $10,000 or less and
characterized their financial situation as “poor.” Even after participating in PSP and receiving services,
more than half reported that their financial situation was unchanged and 25 percent said it was worse.
Unemployment remained a problem for many, and 70 percent reported having problems meeting basic
needs for shelter and food. Recommended child support policies for noncustodial parents in
employment programs include establishing orders that track with actual earnings, expedited
modifications, minimum order levels during unemployment, suspended enforcement actions, driver’s
license reinstatement, and forgiveness of state‐owed arrears.
Child support offices should partner with workforce programs that are equipped to offer a wider array
of effective job services and to monitor service delivery. Interviewed PSP participants were most apt

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to report receiving job postings and counseling to guide their job search efforts. While they appreciated
these forms of assistance, nearly all recommended that future programs offer more job training
programs, access to more job opportunities for individuals with weak job history and prior incarceration,
and more work supports such as transportation assistance. Future job‐focused services for noncustodial
parents should be offered by experienced and resourced workforce programs that are equipped to
provide a wider range of services—including job training. These providers also should be in a better
position to monitor the actual delivery of workforce services and to track employment outcomes than
child support personnel are able to do.
Fortunately, there may be an opportunity to address some of the questions and issues that were not
fully resolved in the Parent Support Program. In 2012, the Tennessee Department of Human Services,
Child Support Division was awarded a five‐year demonstration grant from OCSE that is building upon the
PSP program. It provides funding to retain a dedicated employment case manager based in Tennessee
Career Centers to work with low‐income noncustodial parents in the child support system. The five‐year
Child Support Parent Employment Demonstration (CSPED) is being tested in two of the three judicial
districts in Tennessee where the PSP was implemented as well as in Shelby County (Memphis). It
employs a rigorous random assignment evaluation.

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References
Davis, L., J., Pearson, & N. Thoennes (2010). “Tennessee Parenting Project: Final Report.” Denver, CO.:
Center for Policy Research.
Grall, T. (2009). “Custodial Mothers and Fathers and Their Child Support: 2007.” U.S. Census Bureau,
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Holzer, H., S. Raphael, and M. Stoll (2004). “Will Employers Hire Former Offenders? Employer
Preferences, Background Checks, and Their Determinants.” In B. Western, M. Patillo, D.
Weiman (eds.) Imprisoning America: The Social Effects of Mass Incarceration. New York, NY:
The Russell Sage Foundation.
Johnson, H. & M. O’Brien Strain (2000). “Getting to Know the Future Customers of the Office of Child
Support: Projections Report for 2004 and 2009,” Chapter 4, “Underlying Population Trends,”
November 2000, Office of Child Support Enforcement, Administration for Children and Families,
U.S. Department of Health and Human Services, Washington, D.C. Available at
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Knox, V.W. & M. J. Bane (1994). “Child Support and Schooling.” Child Support and Child Well‐Being, I.
Garfinkel, S. McLanahan & P.K. Robins eds., Urban Institute Press.
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Lippold, K. & E. Sorensen. (2011). Strengthening Families Through Stronger Fathers: Final Impact Report
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Pearson, J., L. Davis, & J. Venohr. (2011). “Parents to Work! Program Outcomes and Economic Impact.”
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Pearson, J., R. Kaunelis, & N. Thoennes. (2012). “Massachusetts Parent Support Program: Final Report.”
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Evaluation of The Tennessee Parent Support Program 11-2013

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 Approximately two‐thirds of PSP participants had one child support case, and another quarter

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